Draft Wildfire Resilience Plan 2020

Cover Photo:

2017 Pine Mountain fire burning above Kent Lake

Photo: Matt Cerkel

Marin Municipal Water District Draft Wildfire Resilience Plan 2020

Board of Directors Jack Gibson, President Division I

Cynthia Koehler, Vice President Armando Quintero Division IV Division II

Larry Russell Larry Bragman Division V Division III

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Executive Summary ...... 1 1 Introduction ...... 5 1.1 Policy Statement ...... 7 1.2 Purpose, Goal, & Objectives ...... 7 1.3 Plan Organization & Development ...... 8 1.4 Coordination & Collaboration ...... 8 2 Background & Setting ...... 11 2.1 District Profile ...... 11 2.2 District Assets ...... 12 2.3 Plan Area ...... 12 2.4 Fire Environment...... 14 2.5 Fire History ...... 17 3 Threat Identification ...... 23 3.1 Threat Identification Process ...... 23 3.2 Hazard Categories ...... 24 3.3 Hazard Descriptions ...... 25 3.4 Hazard Summary ...... 37 4. Mitigation ...... 39 4.1 Existing Mitigation Actions...... 39 4.2 Data Gaps & Additional Mitigation Actions ...... 51 5. Planning & Preparedness ...... 67 5.1 Existing Planning & Preparedness Actions ...... 67 5.2 Data Gaps & Additional Planning & Preparedness Actions ...... 77 6. Response ...... 89 6.1 Existing Response Actions ...... 89 6.2 Data Gaps & Additional Response Actions ...... 97 7. Recovery ...... 105 7.1 Existing Recovery Actions ...... 105 7.2 Data Gaps & Additional Recovery Actions ...... 113 8 Recommended Actions ...... 119

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ii List of Figures

Figure 1‐1: Total Acres Burned in California ...... 5 Figure 1‐2: Effect of Climate Change on Acres Burned in the Western United States ...... 5 Figure 1‐3: Municipalities Within the Marin Municipal Water District Service Area ...... 6 Figure 2‐1: Wildfire Resilience “Plan Area” ...... 13 Figure 2‐2: Average Monthly Rainfall & Total Red Flag Warnings Between 2004 and 2019 ...... 14 Figure 2‐3: Extreme Fire Conditions (“Diablo” wind event) ...... 14 Figure 2‐4: Plan Area Fuel Loads ...... 16 Figure 2‐5: District Assets and the WUI ...... 16 Figure 2‐6: Selected Large Wildfires Around Mt. Tamalpais ...... 19 Figure 3‐1: Threat Identification and the Emergency Management Process ...... 23 Figure 3‐2: Plan Area CPUC Threat Zone ...... 27 Figure 3‐3: District Assets in CPUC Threat Zones ...... 27 Figure 3‐4: Rate of Fire Spread Near District Facilities ...... 31 Figure 3‐5: Schematic of District Water Transmission, Treatment, and Distribution System ...... 32 Figure 3‐6: Land Ownership in Defensible Space Zone ...... 34 Figure 4‐1: Threat Identification and Emergency Management Process ...... 39 Figure 5‐1: Planning & Preparedness and the Emergency Management Process ...... 67 Figure 6‐1: Response and the Emergency Management Process ...... 89 Figure 7‐1: Recovery and Emergency Management Process ...... 105 Figure 7‐2: CalOES and CalWARN regions ...... 107 Figure 7‐3: Marin County EOC as Hub of Response & Recovery Activities ...... 107 Figure 7‐4: EOC Communication Channels ...... 108

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iv Acronyms & Abbreviations

BFFIP Biodiversity, Fire, and Fuels Integrated Plan

CalFire California Department of Forestry & Fire Protection

CalOES California Office of Emergency Services

CMF Capital Maintenance Fee

CFR Code of Federal Regulations

CPUC California Public Utilities Commission

CPVC Chlorinated Polyvinyl Chloride

CWPP Community Wildfire Protection Plan

DH Direct Hazard

District Marin Municipal Water District

EOC Emergency Operations Center

EOP Emergency Operations Plan

EPA Environmental Protection Agency

ERP Emergency Response Plan

FAA Federal Aviation Administration

FEMA Federal Emergency Management Agency

FHSZ Fire Hazard Severity Zone

FMA Flood Mitigation Assistance Program

FRAs Federal Responsibility Areas

HMA Hazard Mitigation Assistance

HMG Hazard Mitigation Grant

HMGP Hazard Mitigation Grant Program

HUD Housing and Urban Development

Draft Wildfire Resilience Plan | 2020 v IH Indirect Hazard

IS Ignitions Source (Hazard)

LHMP Local Hazard Mitigation Plan

MCFD Marin County Fire Department

MCOSD Marin County Open Space District

MMWD Marin Municipal Water District

No. Number

NPS National Park Service

NTU Nephelometric Turbidity Units

OES Office of Emergency Services (Marin or California)

PA Public Assistance

PDM Pre-Disaster Mitigation Program

PG&E Pacific Gas & Electric

Plan Water Infrastructure Wildfire Resilience Plan

Plan Area Geographic Domain of Plan

PLC Programmable Logic Controllers

PPE Personal Protective Equipment

PSPS Public Safety Power Shut

PVC Polyvinyl Chloride

SAP Systems Applications and Products (software company)

SCADA Supervisory Control and Data Acquisition

SRAs State Responsibility Areas

SRFs State Revolving Funds

SP California State Parks

T1 T Carrier 1 (Digital Transmission Line)

vi U.S. United States

VMP Vegetation Management Plan

WFSTAR Wildfire Fire Safety Training Annual Refresher

WFTF Wildfire Task Force

WRP Wildfire Resilience Plan

WUI Wildland Urban Interface

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viii 1 Executive Summary

The Marin Municipal Water District’s core preparedness, identify data gaps, and mission is explicitly focused on natural develop recommended actions that will resource management, sustainability, and lead to a more wildfire resilient and reliable water supply reliability. Implicit in this water system that protects communities mission statement is a guiding principle that throughout the service area. water reliability is a fundamental element The district’s Wildfire Task Force (WFTF) of the community; supporting the economy, developed this Plan to capture the ecology, and landscapes that make Marin a perspectives, observations, and input of the unique and desirable place to live. district’s most critical asset; the personnel District Mission Statement who operate the system and understand its “To manage our natural resources in a strengths, weaknesses and potential sustainable manner and to provide our vulnerabilities as it relates to wildfire. This customers with reliable, high‐quality water draft Plan represents more than 15 WFTF at a reasonable price.” meetings over a 12‐month period and will As the community we serve contends with be updated and finalized based on the input potential natural disasters, the district from the Marin County Fire Chief’s recognizes we have a responsibility and role Association, the district’s Board, local to play; we have a duty to protect the municipalities, and the public. The final Plan community we serve by preparing for and will be a living document; updated mitigating against wildfire. District staff periodically to address changing conditions developed this Wildfire Resilience Plan and the evolution of wildfire resiliency best (WRP) to summarize existing district practices. programs and operations related to wildfire

Draft Wildfire Resilience Plan | 2020 1 The district will use this Plan to 1) inform The Plan concludes with an initial internal our board, community, internal evaluation of all identified hazard reduction organization, and agency partners of actions and data gaps, subsequently preparedness status and needs; 2) develop, providing an initial list of recommended implement, and track recommended actions as a starting point for future actions; and 3) provide a basis for future discussions. A summary of the Plan sections investments related to wildfire resilience. follows:

WRP Goal Section 1 ‐ Introduction Increase district wildfire preparedness to This section explains, in detail, the purpose, ensure water system resilience and goals, objectives, and organization of the protection of neighboring communities. Plan including a review of contemporary WRP Objectives wildfire patterns, the district, and the 1. Inform the organization, board, agency partners, and public of preparedness importance of cross‐jurisdictional status and needs. collaboration to improve community and 2. Develop and facilitate implementation of water system resilience to wildfire. recommended actions that improve mitigation, planning, response, and Section 2 ‐ Background & Setting recovery activities. This section reviews topics and 3. Inform Capital Improvement Program to characteristics specific to the district with evaluate and prioritize water the goal of providing a baseline infrastructure and wildfire resilience understanding of district assets, the Plan projects. Area, fire environment, and history of fire within the Plan Area. This Plan is comprised of eight sections: Section 3 ‐ Threat Identification Introduction, Background & Setting, Threat Threat identification is the first step in the Identification, four focus areas of emergency management process where Mitigation, Planning & Preparedness, potential hazards and threats are identified Response, and Recovery, and using a combination of experience, Recommended Actions. Each focus area forecasting, and subject matter expertise. section reviews existing hazard reduction The purpose is to conduct a comprehensive actions, identifies data gaps, and develops and broad‐based review of district actions that could be implemented to operations and the surrounding community improve water system and community to identify specific fire‐related threats. Staff resilience to wildfire. identified a total of 23 threats to district Hazard Reduction Actions assets and core business activities including Specific strategies, approaches, or actions water storage, treatment, delivery, system that promote wildfire resilience. maintenance and operation, and watershed

Draft Wildfire Resilience Plan | 2020 2 EXECUTIVE SUMMARY

management. The identified hazards were Section 4 - Mitigation organized into three general categories Mitigation is the second step in the including Ignition Sources, Direct Hazards, emergency management process where and Indirect Hazards (Table 1). The hazard reduction actions (mitigations) are subsequent focus area sections seek to developed and implemented that will identify and develop existing and potential prevent or reduce the probability of an hazard reduction actions that target the 23 emergency event occurring or reduce the identified hazards. damaging effects of unavoidable Table 1: Identified Hazards emergencies. This section of the Plan reviews existing hazard reduction actions Ignition Source and develops potential actions that target IS-1: Electrical Service Connections identified hazards. A total of 53 potential IS-2: Outside Utilities (PG&E) mitigation actions were identified to IS-3: District Facilities improve district and community resilience IS-4: Leased Facilities to wildfire. IS-5: System Maintenance IS-6: Watershed Maintenance & Section 5 - Planning & Preparedness Management Preparing for natural disasters means IS-7: Watershed Visitors developing a plan that identifies the IS-8: Outside Contractors resources, processes, and procedures Direct necessary to respond and recover. The DH-1: Damage to Assets fundamental goal is to develop and DH-2: Damage to Communications System document strategies and approaches that DH-3: Impacts to Physical Hydrology enhance an organization’s ability to provide DH-4: Source Water Quality services in the face of significant operational challenges. This section of the DH-5: Vegetation Plan reviews planning and preparedness DH-6: Access to Facilities actions already being performed by the DH-7: Distribution System Contamination district and identifies data gaps and DH-8: Pressure Loss potential planning and preparedness DH-9: Staff Safety actions that target the identified hazards. A DH-10: Visitor Safety total of 24 potential planning and

Indirect preparedness actions were identified to IH-1: Staffing improve district and community resilience to wildfire. IH-2: Public Safety Power Shutoff IH-3: Fire Response & Suppression Section 6 - Response IH-4: Staff Preparation & Training Response is the fourth step in the IH-5: Financial Security emergency management process where an

Draft Wildfire Resilience Plan | 2020 3 EXECUTIVE SUMMARY

entity addresses short-term, immediate Potential hazard reduction actions were effects of an emergency event. The primary initially prioritized based on the focus is to limit the loss of life and property, consequence or impact to district personal injury, and in the case of the operations if an action is not pursued, the district, to maintain water supply. This time required to implement the action, and section of the Plan reviews existing the degree to which an action reduces the response processes and procedures and probability of a wildfire. The resulting identifies potential actions to improve the prioritized list of recommended actions district’s ability to respond to wildfire includes a spectrum of actions including events. A total of 11 potential response policy changes, updates to response plans, actions were identified to improve district formalizing best practices for district crews and community resilience to wildfire. and district contractors, and capital investments. Section 7 - Recovery Recovery the final step in the emergency Some of the highest ranking actions management process where the primary included updating the district’s Emergency focus is restoring or improving pre-disaster Operations Plan, completing design and community services and operational construction of a backup power facility at capabilities. Recovery activities typically the San Geronimo Treatment Plant, occur after immediate threats to life and developing a prioritized list of key facilities property have passed and crews can safely to protect during a wildfire, and removing begin the process of assessing damage and remote infrequently used barbeques on the making necessary repairs to operationalize watershed. The full initial list of prioritized affected components of the water system. recommended actions is provided in Table This section of the Plan reviews existing 8.2. recovery processes, identifies data gaps, and develops potential recovery actions. A Conclusion total of 12 potential recovery actions were Fifteen of the most destructive wildfires in identified to improve district and California’s recorded history have occurred community resilience to wildfire. in the last 20 years; 10 in the last 4 years. Local governments and water agencies Section 8 - Recommended Actions must address this emerging threat including Upon completing its review of the four the associated impacts to life, property, the focus areas staff compiled all potential community, and water system. The Marin hazard reduction actions and conducted an Municipal Water District has developed this internal scoring or ranking of potential Plan to identify and address wildfire hazards measures based on three general criteria. in order to protect the system we operate and the community we serve.

Draft Wildfire Resilience Plan | 2020 4 1 Introduction

Introduction Figure 1-2: Effect of Climate Change on Acres Burned in Fifteen of the most destructive wildfires in the Western United States California’s recorded history have occurred in the last 20 years; 10 in the last 4 years1. Despite a 50% reduction2 in reported ignitions the total area burned in California has more than doubled since the 1980s (Figure 1-1).

Figure 1-1: Total Acres Burned in California

The recent uptick in wildfire impacts and destruction has been dubbed “the new abnormal”4. Local governments and water agencies must address this scenario and associated impacts to life, property, and water infrastructure. This includes This increased activity can be attributed to secondary impacts like those observed after fuel load accumulation associated with the Camp and Tubbs fires in Butte and historic fire suppression, natural climate Sonoma Counties where pressure loss and variability, and human induced climate contamination of service laterals and change. Research indicates that human- distribution mains with toxix organic caused climate change has been compounds affected water system responsible for a 55% increase in fuel aridity reliability long after the wildfire event and a doubling of the total area burned passed. between 1984 and 2015 in the west3 (Figure 1-2).

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SECTION 1 INTRODUCTION

Marin Municipal Water District rural locales and communities of Lucas Valley, and San Geronimo Valley (Figure 1-3). Established in 1912, the Marin Municipal Throughout the 147 square-mile service Water District (district) is the oldest area the district’s water infrastructure municipal water district in the state of intersects landscapes that are increasingly California. The district serves a population susceptible to wildfire. After years of fire of approximately 190,000 in central and suppression, inconsistent levels of southern Marin County including vegetation management, and the influence incorporated Sausalito, Tiburon, Belvedere, of global climate change, the importance of Mill Valley, Corte Madera, Larkspur, San planning for wildfire in order to meet our Anselmo, Ross, Fairfax, and San Rafael along primary mission has reached a critical level. the U.S. Route 101 corridor and the mostly

Figure 1-3: Municipalities Within the Marin Municipal Water District Service Area

0 1 2 4 Miles

Lucas Valley

s Va 101 L u ca lley ¤£ R d Forest Knolls Sir Francis Drake Blvd ³ Sleepy Hollow Woodacre Santa Venetia

San Anselmo San Rafael

Ross

Sir Fra n c is D rak e B lvd

Larkspur ¦¨§580 Corte Madera

Mill Valley

Tib ur o n Blvd Tiburon

Belvedere ¤£101 Marin County Sausalito

Service Area

6 SECTION 1 INTRODUCTION

1.1 Policy Statement community resilience and reliability in the face of increased wildfire risk. The district’s fundamental goal for wildfire planning is captured in our mission WRP Goal statement. Increase district wildfire preparedness to ensure water system resilience and District Mission Statement protection of neighboring communities. “To manage our natural resources in a sustainable manner and to provide our WRP Objectives customers with reliable, high-quality water 1. Inform the organization, board, agency at a reasonable price.” partners, and public of preparedness status and needs. The district endeavors to fulfill this mission 2. Develop and facilitate implementation of in the event of a wildfire by evaluating the recommended actions that improve status of existing wildfire programs and mitigation, planning, response, and preemptively developing and implementing recovery activities. hazard reduction actions to improve overall 3. Inform Capital Improvement Program to community and water system resilience and evaluate and prioritize water reliability. infrastructure and wildfire resilience projects. The purpose of this Wildfire Resilience Plan 1.2 Purpose, Goal, & Objectives (WRP) or “Plan” is to approach wildfire Historically wildfire preparedness planning planning efforts in a programmatic way that has focused on developing and informs the district’s core business and implementing hazard reduction actions that embraces the responsibility we have to avoid or minimize the loss of structures and protect the community we serve. This Plan human life. The county of Marin, along with will summarize existing district programs municipal departments and special fire and operations related to wildfire districts, non-profits, and state and federal preparedness, identify data gaps, and agencies have expended considerable effort develop recommended actions that will to identify key risks, areas of concern, and lead to a more fire resilient and reliable develop hazard reduction strategies that water transmission and distribution system will reduce the impact of wildfire to life and that protects the communities adjacent to property in Marin County5, 6. Recent wildfire district lands and communities throughout events and concomitant impacts to water the service area. supply infrastructure across the western United States have emphasized the The district will use this Plan to 1) inform importance of integrating these wildfire- our board, community, internal planning efforts with water infrastructure organization, and agency partners of planning to improve water system and preparedness status and needs; 2) develop, implement, and track recommended

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SECTION 1 INTRODUCTION

actions; and 3) provide a basis for future reduction actions are organized into investments related to wildfire resilience. It “Categories” and “Topic Areas”. is expected that it will be a living document Hazard Reduction Action updated periodically to address changing Specific strategies, approaches, and actions conditions and evolution of wildfire that promote wildfire resilience. resiliency best practices. Category A grouping of topic areas and associated 1.3 Plan Organization & Development hazard reduction actions with a similar instrument of implementation (e.g. Plans, The district’s Wildfire Task Force (WFTF), Programs, & Procedures, Policies, which is composed of key staff with an Agreements, & Contracts, Training). expertise in system maintenance and Topic Area operation, water treatment, engineering, A specific subject area for which existing and and watershed management, developed proposed hazard reduction actions are this Plan to capture the perspectives, discussed. observations, and input of the district’s most critical asset: the personnel who The report concludes with an initial (draft) operate the system and understand its prioritization of hazard reduction actions strengths, weaknesses, and potential and list of recommended actions (Section vulnerabilities. The Plan represents over 15 8). staff meetings over the course of a 12- 1.4 Coordination & Collaboration month period and extensive internal communication and analyses. The final Plan The district acknowledges that to be will incorporate input and review from the effective, wildfire and water infrastructure Marin County Fire Chief’s Association, the planning should cross jurisdictional and district’s Board, local municipalities, and the organizational boundaries. The district is public through formal workshops. just one agency, with a focus on water supply and delivery, in a suite of The Plan includes an Executive Summary, governmental organizations that are Introduction, Threat Identification, and four responsible for and can influence and “Focus Area” sections that consider the improve the county’s overall preparedness emergency planning topics of Mitigation, to wildfire through communication and Preparedness, Response, and Recovery. coordinated implementation of hazard Each “Focus Area” section includes a review reduction actions. As described in the Marin of existing hazard reduction actions and County Community Wildfire Protection Plan identifies data gaps and potential actions (CWPP), fire protection in Marin County is that could be implemented to improve the responsibility of federal agencies, local district and community resilience. Hazard municipalities, and the State of California.

8 SECTION 1 INTRODUCTION

The Marin County Fire Department (MCFD) Table 1-1: Fire Districts in Plan Area is the primary provider of fire protection Marin County Fire Department1 and prevention activities in both Federal Corte Madera Fire Department and State Responsibility Areas (FRAs and Kentfield Fire Protection District SRAs, respectively) and although the district’s watershed maintenance and law Larkspur Fire Department enforcement park ranger staff are trained Marinwood Community Services District wildland firefighters, MCFD serves as the Mill Valley Fire Department lead agency in dispatching and responding Novato Fire Department to fires on district lands. Of the thirteen Ross Valley Fire Department professional fire service agencies in Marin San Rafael Fire Department County, eleven are responsible for Southern Marin Fire Protection District protecting district water infrastructure in Tiburon Fire Protection District the event of a wildfire (Table 1-1). 1 Provides fire protection and prevention for State and Continued coordination and communication Federal Responsibility Areas with these entities will be a critical element of the district’s process.

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SECTION 1 INTRODUCTION

1 CalFire “Top 20 Most Destructive California Wildfires” August, 8, 2019. http://www.fire.ca.gov/media/5511/top20_destruction.pdf, Last accessed on 10/18/2019 2 2018 CalFire Strategic Plan. pp 6 3 Abatzoglou and Williams, 2016. Impact of Anthropogenic climate change on wildfire across western US forests. PNAS 113 4 Governor Jerry Brown, 9/11/2018 Paradise Fire press conference 5 Wildfire Preparedness – A New Approach. 2018-2019 Marin County Civil Grand Jury 6 Marin County Community Wildfire Protection Plan, 2017

10 2 Background & Setting

2.1 District Profile mainly on Mt. Tamalpais which are open to recreational use and attract approximately The Marin Municipal Water District is a 2 million visitors a year. Approximately 75% special district headquartered in Corte of delivered water is locally sourced from Madera, California and governed by a five- five reservoirs encompassed by district member board of directors. The district lands (Lagunitas, Bon Tempe, Alpine, Kent, operates and maintains a highly complex and Phoenix) and two reservoirs in West water collection, treatment, and Marin (Soulajule and Nicasio) surrounded distribution system reflective of the 26 by mostly rural unincorporated private separate water companies1 that were lands. The other 25% of the district’s water merged to form the district and the is imported from Sonoma County Water infrastructure (pumps, tanks, etc.) required Agency’s Russian River system. Locally to collect, transport, treat, and deliver sourced water is treated at the San water over significant elevation gradients Geronimo and Bon Tempe treatment plants across the service area. using a combination of physical and The district operates and maintains over chemical processes to remove impurities 900 miles of pipeline, 7 dams and and deactivate pathogens before entering reservoirs, 94 pump stations, 128 water the distribution system. On average, the supply tanks, and 3 water treatment plants. district provides 25,000 AF of water per This system of water infrastructure provides year to its customers; an essential life- water to 190,000 customers (73% of service integral to public health and the Marin’s population) through 61,800 water region’s economic vitality. service connections. The district is the second largest landowner and land management agency in Marin County, second only to the National Park Service, and owns 21,600 acres of watershed lands

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SECTION 2 BACKGROUND & SETTING

Table 2-1: Summary of Water Infrastructure Assets Potentially Affected by Fire Dams, reservoirs, and natural landscapes which capture and store runoff Water Supply/Watershed for long-term storage. Pipe network transporting raw water from water supply reservoirs to Transmission Mains treatment plants and treated water to storage tanks prior to distribution. Permanent facility that receives and treats raw water to state and Treatment Plants federal drinking water quality standards. Steel, concrete, wood, or plastic tanks used to store water for high Storage Tanks demand periods and to maintain system pressure. Mechanical pumps, motors, facilities, and associated controls used to Pump Stations transport and control the flow of water between water supply sources, treatment plants, and storage tanks. Pipe network transporting treated water to primary consumption zones Distribution Mains in service areas. Valve/Regulators Mechanical components used to control the flow of water in the system. Paved and unpaved roads, watershed facilities, and infrastructure Roads & Facilities providing access to Water Supply, Transmission Mains, Treatment Plants, Storage Tanks, and Pump Stations. Supervisory Control and Data Acquisition (SCADA) system and associated SCADA/Communications telemetry resources that facilitate remote observation and control of the water system.

2.2 District Assets encompassing the Nicasio and Soulajule watersheds. It includes a 100-foot buffer The district developed an asset around all water infrastructure assets and management program to prioritize and the source watersheds that collect allocate limited capital infrastructure precipitation (Figure 2-1). The Plan Area funding to improve system reliability. This defines the spatial scope of the WRP. Plan adopts and follows asset management However, it is not a representation of principles to ensure prudent use of proposed actions, programs, or district available financial resources. District assets responsibility as it extends beyond areas potentially affected by fire are summarized owned by the district. Instead, the Plan in Table 2-1. Area is a planning-boundary that seeks to 2.3 Plan Area capture the zone of wildfire influence on district facilities and operations and District staff defined a “Plan Area” for which includes urbanized city centers, densely fire preparedness would be evaluated. The populated residential neighborhoods Plan Area extends beyond the district’s situated on steep vegetated slopes, rural service area to encompass 110 square-miles agricultural lands, and over 21,600 acres of of Marin County from the shores of the San district-owned watershed lands managed Francisco Bay to the top of Mt. Tamalpais, for the protection of water quality. west towards Lagunitas, and northward

12 SECTION 2 BACKGROUND & SETTING

Figure 2-1: Wildfire Resilience “Plan Area”

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SECTION 2 BACKGROUND & SETTING

2.4 Fire Environment Two notable synoptic patterns influence fire weather and fire behavior in the Plan Area. The entire Plan Area is vulnerable to some During normal summer season wildfire level of wildfire depending on the local site- weather, the Pacific High is situated over specific fire environment. The Fire the eastern Pacific and California coast. As Environment is the combination of weather, inland areas heat up surface air rises and vegetation, topography, and land use low pressure develops over central patterns that influence wildfire behavior California creating a strong pressure and risk at a particular location. gradient that drives cool moist air from the Weather Patterns Pacific Ocean to inland areas. These onshore “Delta” winds are highest in the The CWPP provides a detailed description late afternoon (15 – 25 mph), recede of typical weather patterns and the overnight as inland heating subsides, and resulting microclimates that develop across are responsible for moderating local climate Marin County. In general, a Mediterranean conditions and fire conditions. climate with cool, wet winters and hot, dry summers prevails; wildfire season is Figure 2-3: Extreme Fire Conditions (“Diablo” wind event) considered to extend from May to late October or until significant rain events increase soil and vegetation moisture

(Figure 2-2). However, recent climatological studies and fire history have suggested fire season extends through November each year.

Figure 2-2: Average Monthly Rainfall & Total Red Flag Warnings Between 2004 and 2019

Extreme summer wildfire weather occurs when the Pacific High shifts inland over southeastern Oregon and northern Nevada and the dominant wind direction transitions from onshore to offshore (Figure 2-32). This seemingly minor change in the location of the Pacific High has a substantial effect on

14 SECTION 2 BACKGROUND & SETTING potential fire risk and behavior as it results become more extreme throughout the Plan in warmer temperatures, lower humidity, Area. and stronger wind conditions. As described in the CWPP, this extreme summer wildfire Vegetation & Topography condition decouples the typical heating, The diverse assemblage of vegetation cooling, and moisture delivery cycle that across the Plan Area is determined by the mitigates wildfire conditions and local interaction and combination of long-term climates. weather patterns, soil type, aspect, and elevation. For example, north facing Because the winds originate from second-growth redwood forests along the descending air masses over continental watershed’s western boundary are areas they are extremely dry (low humidity) relatively high in elevation and interact with as compared to typical onshore winds. cool and moist onshore flow to generate Dubbed “Diablo” winds, they exacerbate localized precipitation known as “Fog Drip” fuel aridity, increase the probability that throughout the typical dry season. Fog drip ignition sources will develop into full- tends to increase local soil moisture and fledged wildfires, and decrease the support vegetation that requires a higher effectiveness of fire suppression activities. water input (redwoods, ferns, etc.) which, if Reviewing normal and extreme wildfire managed appropriately, may be more season weather may not adequately resilient to wildfire. capture future fire environment conditions. Image 2-1: Fog Drip in Redwood Forests Climate models predict a widespread increase in extreme or anomalous weather events such as tornados, hurricanes, flooding, and severe prolonged drought3,4. Longer droughts have the potential to change vegetation patterns and increase the rate of tree mortality and infestations that leave landscapes more susceptible to wildfire. California’s Fourth National Climate Assessment in November of 2018 reported that planners should expect climate change to “increase the frequency This is in sharp contrast to areas less than ½ and intensity of wildfires”. Overall, given mile away along Pine Mountain Fire Road known weather processes and anticipated and Azalea Hill where serpentine soils, effects of climate change, the district south-facing exposures, and a subtle ocean should anticipate that fire weather influence result in vegetation that’s conditions will not subside and will likely

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SECTION 2 BACKGROUND & SETTING

adapted to drier conditions; short grass, Land Use shrubs, and oak woodlands. Wildfire preparedness and planning Image 2-2: Grassland, Shrub, and Oak Woodland typically focuses on vegetation Dominated Vegetation management, structure hardening, and clearing defensible space in the Wildland Urban Interface (WUI) where structures are comingled amongst wildfire prone vegetation and landscapes and are therefore significantly more susceptible to wildland fire. District assets within the WUI are similarly more vulnerable to wildland fire.

Wildland Urban Interface (WUI) Areas of increased risk of wildfire where fire- The diversity of vegetation types in the Plan evolved fuels interface with habitable Area denotes fuel loads and wildfire risk are structures. heterogeneous across the landscape. The CWPP developed a fuel model to represent The Plan Area includes 27 square miles of the spatial variation in fuels loads in order WUI encompassing almost 90% (204) of the to analyze its effects on anticipated fire district’s assets (Figure 2-5). Within the WUI behavior and overall fire risk. the district’s pump stations, tanks, and Approximately 70% of the Plan Area falls treatment plants are positioned amongst into moderate, high, or very high fuel loads privately owned structures, landscapes, and based on the CWPP vegetation and fuel wildland fuels. In these areas, limited load model (Figure 2-45). access, complex topography, and landowners with varying landscape Figure 2-4: Plan Area Fuel Loads management approaches complicate fuels management and response activities.

Figure 2-5: District Assets and the WUI

16 SECTION 2 BACKGROUND & SETTING

The highly distributed nature of the After European contact, the relationship district’s infrastructure, especially as it between humans, fire, and the landscape relates to the WUI and high fuel loads is one changed dramatically. In 1881, a landowner of the primary threats to community and targeting blackberry removal lost control of water system resilience and reliability (see a fire that subsequently burned 65,000 Section 3). While the district can manage acres6. At the turn of the 19th century, vegetation and fuels in the immediate efforts were already underway to protect vicinity of critical assets, management and the wildlands surrounding Mt. Tamalpais operations staff have little control over fuel from conflagration. William Kent loads on adjacent private property; a key spearheaded the formation of the factor influencing asset vulnerability. Tamalpais Forestry Association whose

Image 2-3: District Tanks in the Wildland Urban Interface members engaged and suppressed a large (WUI) fire in 1904. The Tamalpais Fire Association was formed after a 5,025 acre 1913 fire along the south face of Mt. Tamalpais. This locally funded effort was a precursor to the Tamalpais Forest Fire District (TFFD) which was formed by the state in 1917 and tasked with wildfire prevention and control. In 1917 the Marin Municipal Water District established its firefighting program by funding two joint patrolman and fire warden positions in TFFD. In addition to the 1881 fire there have been five other large 2.5 Fire History wildfires within the Plan Area over recorded history including the Bill Williams, 1913, Marin County and the lands encompassing 1923, Mill Valley, and Mill Fire (Table 2-2 the Plan Area have an active history and and Figure 2-6)) as well as forty-two smaller relationship with fire. Prior to European fires less than 500 acres. Most of Marin’s colonization indigenous peoples used fire to largest wildfires have occurred under the remove undergrowth, promote the growth extreme offshore wind conditions discussed of valuable resources, improve hunting in Section 2.4. grounds and travel routes, and to protect their communities. Indigenous peoples applied fire at specific frequencies and locations to achieve desired outcomes.

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SECTION 2 BACKGROUND & SETTING

Table 2-2 – Wildfires in Plan Area

Year Name Acres Burned 1881 1881 Fire 3,400 1891 Bill Williams 3,900 1913 1913 Fire 3,000 1923 1923 Fire 40,000 1929 FirerotectionMill Valley 900 1945 FireDepartmentMill Fire 22,600

In 1941, the responsibility of fire prevention and suppression in the Plan Area (Marin County) was transferred to the newly created MCFD7. MCFD is the lead fire suppression agency in Marin County although the district maintains initial attack and suppression capabilities (staff training, fire apparatus, etc.) as part of managing the watershed (see Section 5).

18 SECTION 2 BACKGROUND & SETTING

Figure 2-6: Selected Large Wildfires Around Mt. Tamalpais

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20 BACKGROUND & SETTING

1 Gibson, 2012, Mount Tamalpais and the Marin Municipal Water District 2 Source: Paul Horn/Inside Climate News 3 Diffenbaugh et al, 2015. Anthropogenic warming has increased drought risk in California. PNAS 112 (13) 4 Mann & Gleick, 2015. Climate Change and California drought in the 21st century. PNAS, 112 (13) 5 Marin County Community Wildfire Protection Plan, 2017 6 Spitz, 2012, To Save A Mountain, The 100-Year Battle for Mt. Tamalpais 7 Spitz, 2012, To Save A Mountain, The 100-Year Battle for Mt. Tamalpais

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22 3 Threat Identification

Introduction Threat A potential action or event that can cause Threat identification is the first step in loss or disruption to district operations (e.g. emergency management process where earthquake, flooding, wildfire). potential threats (seismic, flooding, wildfire, Hazard etc.) and associated hazards to a particular The mechanism, characteristic, circumstances, or agent leading to a loss or resource are identified using a combination disruption in district operations. of experience, forecasting, and subject matter expertise1 (Figure 3-1). After threats This section describes the district’s process and hazards are identified, planners can for threat identification and summarizes develop tailored hazard reduction actions key wildfire related hazards. The hazards within the focus areas of mitigation, will be linked to existing and potential planning and preparedness, response, and hazard reduction actions in subsequent recovery that will increase system “Focus Area” sections. resilience. This Plan specifically focuses on 3.1 Threat Identification Process the threat of wildfires to district operations, therefore staff limited its focus to addresses Staff with an expertise in system hazards that are directly or indirectly maintenance and operation, water associated with wildfire. As additional treatment, engineering, and watershed wildfires impact communities and “lessons- management met over a 12-month period learned” are developed, there may be a to review wildfire hazards and associated need to expand on the hazards identified consequences. herein and develop additional hazard reduction actions.

Figure 3-1: Threat Identification and the Emergency Management Process

Threat Planning & Mitigation Response Recovery Identification Preparedness

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Staff reviewed district asset types, Image 3-1: Downed Power Lines Near Kent Lake (Ignition Source) vulnerabilities, and core business activities including water storage, treatment, delivery, system maintenance and operation, and watershed management. The process tapped lessons learned from recent wildfire effects on water agencies across the state, local and regional wildfire planning documents, and available literature on wildfire and water Direct Hazards 2 infrastructure planning . Wildfires have the potential to directly consume or damage district assets that are 3.2 Hazard Categories essential to water treatment and delivery. Staff identified wildfire hazards and This hazard is a function of location, organized them into the three following surrounding vegetation or wildfire risk general categories: Ignition Sources, Direct profile, and the vulnerability and criticality Hazards, and Indirect Hazards. of the asset. This category includes distinct hazards that directly contribute to the Ignition Sources damage and destruction of district assets The best way to avoid a wildfire is to and the surrounding community. preclude or avoid scenarios or circumstances that can lead to potential Image 3-2: City of Napa Pump Station Near Silverado Country Club Destroyed During the 2017 Atlas Fire (Direct ignitions. For example, Pacific Gas and Hazard)4 Electric’s (PG&E) Wildfire Safety Plan3 uses Public Safety Power Shutoffs (PSPSs) to reduce potential ignitions across its service area when fire weather conditions are critical. Given the spatial extent and scope of the district’s activities in relation to the water shed and WUI, staff considered potential ignition sources as a significant Indirect Hazards hazard to the water system and In addition to direct hazards, wildfire surrounding communities. Therefore, this emergencies have the potential to indirectly category includes ignition related hazards affect the district’s core mission. Indirect associated with district operations, hazards can be as consequential as direct watershed visitors, contractors, and lessees hazards and therefore necessitate hazard within the Plan Area. reduction actions. This category includes

ancillary or secondary threats that may

24 SECTION 3 THREAT IDENTIFICATION disrupt system performance, personnel, 3.3 Hazard Descriptions financial security, and staffing but are not Ignition Sources distinct threats to particular assets. In total, Staff identified a total of 8 general types of staff identified 23 Ignition Source, Direct, hazards that could lead to an ignition event. and Indirect Hazards (Table 3-1). A brief summary of each ignition source (IS) Table 3-1: Summary of Identified Hazard hazard is provided below. IS-1: Electrical Service Connections Ignition Source As described above, the district maintains IS-1: Electrical Service Connections assets across central and southern Marin IS-2: Outside Utilities (PG&E) County that rely on electrical power to run IS-3: District Facilities the pumps that transmit, treat, and then distribute water. The district also operates IS-4: Leased Facilities and maintains communications equipment IS-5: System Maintenance essential to system control and operation IS-6: Watershed Maintenance & Management that require electrical service connections. IS-7: Watershed Visitors Power to run the district’s assets is obtained from PG&E’s distribution network IS-8: Outside Contractors via overhead or underground service

Direct connections at each facility. DH-1: Damage to Assets DH-2: Damage to Communications System PG&E is responsible for maintenance of DH-3: Impacts to Physical Hydrology electrical infrastructure up to the service DH-4: Source Water Quality connection. This does not include DH-5: Vegetation weatherheads, or roof, wall, or ground conduit leading up to the service panel and DH-6: Access to Facilities meter. It also does not include any poles, DH-7: Distribution System Contamination conduit, or connections after the service DH-8: Pressure Loss connection and meter box that power DH-9: Staff Safety district infrastructure. Therefore, the DH-10: Visitor Safety district is responsible for maintaining and

Indirect inspecting interpoles, conductors, conduit, IH-1: Staffing and electrical service connections. If the IH-2: Public Safety Power Shutoff vegetation surrounding these connections is not managed or if the components are not IH-3: Fire Response & Suppression adequately maintained they could cause an IH-4: Staff Preparation & Training ignition. IH-5: Financial Security

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IS-2: Outside Utilities Image 3-3: Crews at the Site of a Utility Caused Wildfire on Watershed Lands (2006 Pine Fire) PG&E operates transmission and distribution lines throughout the Plan Area that are a potential ignition hazard. The California Public Utilities Commission (CPUC) regulates privately-owned utilities such as PG&E and has published a Fire- threat map that identifies where there is an elevated (Tier 2) and extreme (Tier 3) risk for utility-caused wildfire damage (Figure 3- 2). The CPUC threat zones do not indicate or infer the level of risk to a specific asset within each zone but instead provide a relative assessment of the likelihood and potential level of damages to people and property at a broad scale for planning and regulatory purposes. Overall, approximately 27% and 43% of the district’s pump stations, tanks, and treatment plants are located in CPUC Tier 2 and Tier 3 risk zones, PG&E is required to develop and implement respectively (Figure 3-3). Therefore, wildfire safety plans for transmission and without considering local site specific distribution lines to reduce the potential for conditions the potential for a utility caused utility-caused ignitions. These plans must wildfire in the Plan Area is high. include vegetation management, regular The threat of utility caused wildfires maintenance and inspection, equipment extends onto water district lands. PG&E replacement, and potential power grid operates and maintains 14 miles of shutdown actions. Despite these efforts, distribution line and 3.4 miles of the utilities within the Plan Area are a transmission line on the watershed which hazard and must be considered in future provide power to Bolinas and services district wildfire planning efforts. district dam, pump, and reservoir facilities.

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Figure 3-2: Plan Area CPUC Threat Zone

Figure 3-3: District Assets in CPUC Threat Zones

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IS-3: District Facilities Many of the district’s assets (pump stations, Similar to district owned and maintained air relief valves, valves, etc.) are located in electrical service connections, the district rural areas and require driving and working operates a broad range of mechanical and near combustible vegetation and terrain. electrical components at each facility that The district also conducts scheduled could potentially cause an ignition. For landscape and facilities maintenance example, pump motors, circuitry, fuel operations that use mowers, chainsaws, storage, and other facilities could and other equipment that could potentially potentially serve as an ignition source if cause an ignition near tank sites, pump they are inadvertently overloaded, under- stations, and other district-owned parcels. designed, improperly maintained or otherwise. This could potentially lead to an Image 3-4: District Staff Welds a Pipe Repair (Potential Ignition Source) ignition within a district facility that spreads to adjacent wildlands and WUI.

IS-4: Leased Facilities The district has 16 long-term leases with private, public, and government entities who use district land and facilities for various activities including cell tower communication infrastructure, horse boarding, construction staging, and overnight lodging. Given that these activities are not under the direct control of the district and could involve electrical IS-6: Watershed Maintenance & systems, maintenance, and fuel storage, Management activities on leased premises could initiate The district manages 21,600 acres of an ignition. watershed lands surrounding Mt. Tamalpais including over 90 miles of fire roads and IS-5: System Maintenance critical facility access routes leading to Continuous maintenance and repair of pump stations, treatment plants, and district assets is required to reliably reservoirs. Watershed maintenance transmit, treat, and deliver water. Crews activities include the use of heavy use heavy equipment, cut-off saws, equipment to grade roads, gas-powered grinders, torches, and welding equipment tools for weed control, mowers for fuel to dig up and repair leaks throughout the reduction activities, prescribed burns, and Plan Area on a daily basis regardless of the facilities maintenance projects that require time of day and fire conditions. welding.

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Image 3-5: MCFD Ignites a Prescribed Burn on Watershed lower level of district staffing and Lands (Ignition Source) associated response capabilities.

Potential ignition sources associated with watershed users are of three general categoriesed: accidental, intentional (arson), and those associated with unlawful activities. Accidental ignitions can occur from parking on dry grass, vehicles or even electric bikes that suffer mechanical issues, or unextinguished charcoal barbeques in picnic areas. Although less common than IS-7: Watershed Visitors unextinguished barbeques, since 2010 The district completed a visitor use and there have been at least five intentionally census survey in 2014 which estimated that set vegetation fires on the watershed. approximately 1.8 million visitors trek to Other activities that could ignite a wildfire the roads and trails of the Mt. Tamalpais include encampments, bonfires, wood-fired Watershed each year5. Based on recent barbeques, fireworks, and smoking; all of observations and regional patterns, use has which are not permitted (illegal) on likely climbed to over 2 million visitors a watershed lands. year. Watershed use peaks in March, April, and May at around 200,000 visitors per Image 3-6: Watershed Lands are Open to the Public 7 Days a Week, 7 am to Sunset month and then levels off during the hotter and drier summer months to approximately 125,000 monthly users. Visitors can enter the watershed through 98 access points, including gateways, formal trailheads, parking lots, and informal trails. However, the largest proportion of visitors enter via the East Peak, Phoenix Lake, and Sky Oaks gateways. During the typical fire season, watershed lands can receive around 29,000 visitors a week; the majority of which occur on weekday evenings and midday weekends when fire hazard conditions are IS-8: Outside Contractors typically the highest. Weekend activity is The district relies on outside contractors to typically four times that of weekday activity implement capital improvement projects (2,500 people/day) and coincides with a such as pipeline replacement, vegetation

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management, and other special projects Underground Assets throughout the Plan Area. Contractor Underground facilities such as pipes, meters, activities and risk factors parallel that of valves, electrical components are impacted by conductive heat with the depth of burial district system maintenance (IS-5) and indicating the level of insulation and watershed maintenance and management resiliency to fire. (IS-6); they use heavy equipment, Aboveground Assets combustion engines, welding equipment, Assets that are directly exposed to all three and vehicles that could initiate a wildfire if heat transfer processes; radiant, convective, conditions are dry. Some contractors and conductive and are most susceptible to working on district lands are subcontracted fire behavior. by PG&E, and therefore the district has less Image 3-7: San Geronimo Water Treatment Plant control over them compared to contractors (Aboveground Asset) working directly for the district.

Direct Hazards Staff identified 10 direct hazards and associated consequences to district operations. A brief summary of each direct hazard (DH) is provided below.

DH-1: Damage to Assets As described in section 2, the district’s primary assets (pump stations, tanks, and treatment plants) are distributed throughout a wide geographic region with The Marin CWPP developed a 5-meter varying fire risk characteristics. The primary resolution fire risk map for Marin County differentiator of vulnerability is whether the that incorporates fuel loads (vegetation), asset is located aboveground or topography, population density, and areas underground. Underground facilities are of concern to prioritize future wildfire more insulated from the effects of fire even hazard reduction activities. Although most if the components are combustible (CPVC of the district’s assets are within the WUI mains, PVC services, etc.). Therefore, staff and are captured in CWPP Areas of focused on aboveground assets. Concern, the CWPP analysis did not specifically address fire behavior in relation to water district assets.

Staff utilized the CWPP fire behavior model results to make an initial assessment of wildfire risk at each of the district’s pump

30 SECTION 3 THREAT IDENTIFICATION stations, storage tanks, and treatment However, this approach does not integrate plants. The model-predicted rate of spread factors such as structure vulnerability (e.g. within a 200 foot region of each pump roof type, structure type, etc.), site-specific station, storage tank, and treatment plant vegetation characteristics, potential access was extracted for average and extreme fire limitations, and emergency response times conditions. Higher rates of spread are that have a large effect on asset inversely related to fire suppression vulnerability. efficacy. Therefore the rate of spread around each district asset represents the Despite the seemingly low predicted rates likelihood an asset can be protected in the of spread, the district should expect and event of a fire. plan for asset damage that will affect the

Figure 3-4: Rate of Fire Spread Near District Facilities water transmission, treatment, and distribution system (Figure 3-5) and should consider efforts to make key features and system components more resistant to fire. Damage to a treatment plant, transmission pump, or primary distribution pump could severely impact water production and lead to a significant disruption. In the event a primary distribution pump station is damaged, all customers connected to the local gravity system as well as the associated independent storage tanks could be affected. In the event of damage to an independent pump station or storage tank, service disruptions would be limited and isolated to the pressure zone serviced by

the pump and tank system. Results of this initial analysis (Figure 3-4) indicate the majority (90%) of district assets fall in regions that have predicted rates of spread in the 20 feet/minute range for average fire conditions but shift to more rapid rates for extreme fire conditions which are representative of wind-driven wildfire events that have plagued California over the last decade.

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SECTION 3 THREAT IDENTIFICATION Figure 3-5: Schematic of District Water Transmission, Treatment, and Distribution System

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DH-2: Damage to Communications System district assets, the community at large, and The district’s water transmission, affect source water quality (see below). treatment, and distribution systems are Furthermore, high severity burns change monitored and controlled remotely using a soil structure and in combination with the digital technology system called Supervisory removal of vegetation and soil organics that Control and Data Acquisition (SCADA). The intercept precipitation, result in higher peak system includes water level and flow flows. Both of these physical responses sensors, programmable logic controllers have the potential to impact access to (PLCs), power systems, and antennas critical facilities by overwhelming drainage mounted on poles, buildings, and tanks. networks, altering water sourcing and treatment processes, and affecting The purpose of the system is to monitor reservoir operations. and adjust system processes (water DH-4: Source Water Quality treatment, pumping, and storage) to Source water quality is representative of balance spatial and temporal demand biogeochemical processes acting at a patterns across the service area. This watershed scale. Wildfire influences these process occurs 24 hours a day, 365 days a processes and therefore the district’s ability year. Damage to any of the components has to effectively treat source water to state the potential to interrupt communication and federal standards. A range of water links, disrupt real-time remote monitoring quality impacts have been linked to wildfire and control of the system, disrupt service, including increased nutrients (nitrogen & and complicate response communication. phosphorous), dissolved and particulate DH-3: Impacts to Physical Hydrology carbon, sediment from erosion and debris A wildfire with a high burn severity has the flows, heavy metals, and other toxic capacity to drastically impact physical compounds associated with urban hydrology and geomorphic processes6,7. influenced watersheds6. Burn severity is the degree to which fire consumes organic compounds in surface Image 3-8: Alpine Lake (Source Water) litter and the upper soil horizon and has been correlated to higher erosion rates, perturbations in hydrology, and slope instability. Research has shown that severely burned slopes produce higher amounts of sediment in receiving waterbodies and in extreme cases can lead to large-scale slope stability issues resulting in localized landslides and debris flows. Debris flows could potentially damage

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Based on the district’s system design operations, assets, the community, and the capabilities and processes, the main impact watershed. of source water quality changes is the decreased production of water due to an Staff organized vegetation-related hazards increase in turbidity associated with higher to district assets into three categories based rates of erosion. When source water on land ownership and the degree of exceeds approximately 100 nephelometric district influence over vegetation turbidity units (NTUs) output at district management (Figure 3-6). Based on current treatment plants is expected to decrease. defensible space recommendations, areas At levels in excess of 300 NTU, water within 100 feet of tanks, pump stations, and treatment facilities would potentially be treatment plants were calculated within the inoperable. Post-fire source water is also Plan Area. expected to contain increased organics Figure 3-6: Land Ownership in Defensible Space Zone which could result in disinfection byproducts (trihalomethanes, haloacetic acids, bromate, and chlorite) above state and federal drinking water standards.

DH-5: Vegetation Aside from weather conditions, the primary determinant of wildfire behavior and severity is the availability of fuel (vegetation). Most wildfire preparedness efforts focus on mimicking the effects of fire to reduce fuel loads and the risk of property loss. This includes performing activities such as clearing, burning, The district-owned category includes masticating, or controlling the type and parcels sited with key infrastructure (tanks, location of vegetation. Unfortunately, pump stations) while the public-owned vegetation management is a complex issue category includes lands administered by affecting aesthetics, biological diversity, Marin County Open Space, State Parks, safety, and air quality; all key issues that do National Park Service, and other local cities not coincide with a single jurisdictional and towns within the Plan Area (Figure 2-1). boundary or regulatory framework. The The third category includes privately-owned result of this complexity is a range or parcels within 100 feet of critical district assemblage of vegetation management assets where the district has little control activities, or lack thereof, over the Plan over vegetation management activities. Area that is a direct hazard to district Overall, the district is in control of

34 SECTION 3 THREAT IDENTIFICATION approximately half of the state was observed in two recent fires; the 2017 recommended defensible space around its Tubb’s Fire in Santa Rosa, CA and the 2018 assets. Camp Fire in Paradise, CA. In both circumstances benzene and other chemicals Vegetation on the watershed is inherently from fire-damaged plumbing components connected to the wildfire resilience of (pipes & gaskets) were drawn into and surrounding communities. For example, contaminated the local water distribution much of the eastern edge of the district’s system. The very nature of the district’s watershed lands are encircled by the water infrastructure, with tanks, communities of Woodacre, Fairfax, San distribution mains, and service laterals in Anselmo, Ross, and Mill Valley. These high fire danger areas (WUI) and at higher communities, all within the WUI, may be elevations then adjoining pressure zones impacted by wildfires originating on or suggests that contaminants could easily burning through district lands. From that migrate (down gradient) throughout the perspective, the district can play an integral system in the event of a major wildfire and role in protecting the community. pressure loss in the adjacent water system.

DH-6: Access to Facilities DH-8: Pressure Loss Wildfires can damage culverts and bridges, Pressure loss in the distribution system can cause tree falls, or initiate emergency road occur when an isolated water tank falls closures along routes to critical facilities. below operational levels or when increased Emergency road closures and evacuation demand associated with fire-suppression zones may restrict district personnel from approaches system capacity. Both accessing, assessing, and repairing critical circumstances could lead to the flow of facilities. Tree falls and other hazardous water into the distribution system conditions could delay chemical deliveries (backflow) from affected residences or at water treatment plants, affect staffing, or those within the same pressure zone. reduce the district’s ability to respond to Pressure loss could potentially contaminate large leaks and equipment failure. a portion of the distribution system. Together, these access-related issues pose a significant hazard to district operations. DH-9: Staff Safety Some district staff work in or travel through DH-7: Distribution System Contamination high fire risk areas on a daily basis. In the During a wildfire event, private plumbing event of a wildfire, district staff at Sky Oaks and distribution systems are exposed to and the San Geronimo and Bon Tempe significant levels of radiant heat which can Treatment plants, and staff working on melt or burn system components and district facilities across the Plan Area could release hazardous chemicals, soot, and ash be subjected to extremely hazardous into the distribution system. This process conditions or even trapped. Furthermore, it

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is likely that during a wildfire event staff will IH-2: Public Safety Power Shutoff need to cross evacuation zones and enter Potential controlled PSPS events are an areas of active fire to maintain and assess ancillary but consequential hazard system components or even engage in fire associated with the threat of wildfires. suppression efforts. Therefore, there is Under normal operating conditions the some potential for suffering wildfire-related district relies on PG&E’s electrical grid to injuries and even loss of life. power all assets and critical facilities. When PG&E implements a PSPS event power is DH-10: Visitor Safety not available to run the district’s 94 pump Similar to district staff, watershed visitors stations and deliver water through the travel through or recreate in high fire risk distribution system; whatever storage is in areas on a daily basis. Given recent visitor the tanks and distribution system is limited use estimates, it’s possible that on an until backup power can be established. If average weekend day there could be not adequately addressed, the PSPS events upwards of 10,000 people on the could lead to localized or even widespread watershed. In the event of a wildfire, loss of service. visitors could be subjected to extremely hazardous conditions or even trapped. IH-3: Fire Response & Suppression Although Marin County and other fire Indirect Hazards districts in the Plan Area (Table 1-1) are Staff identified a total of 5 indirect hazards. responsible for fire response and A brief summary of each indirect hazard (IH) suppression, the district equips and is provided below. prepares its own forces to respond to wildfire ignitions on watershed lands. IH-1: Staffing District staff must be available and have The wildfire response and suppression access to assets and facilities in order to forces take the form of watershed implement response and recovery activities. maintenance staff and the district’s park Given that the majority of staff are not rangers who are cross-trained as wildland located close to the district’s base facilities firefighters. The park rangers are equipped in Corte Madera, there is a potential that with patrol trucks that double as initial wildfire could impede workers from getting attack fire engines. Additionally the to work. This could be due to road closures watershed maintenance staff can staff the or staff who are directly affected by district’s water tender, dozer, and other fire evacuation orders. Overall, there could be a apparatus. shortage of staff which would limit Maintaining fire response and suppression response and recovery activities. capabilities requires considerable resources and continued investment to be effective

36 SECTION 3 THREAT IDENTIFICATION and safe. It’s critical to understand any methods to fund repairs and maintain potential limitations to response financial security. capabilities and identify and complete required training so district resources and 3.4 Hazard Summary efforts are aligned with national standards All identified ignition source, direct, and and consistent with county-led suppression indirect hazards are summarized in Table 3- efforts. 2.

IH-4 Staff Preparation & Training Table 3-2: Summary of Identified Hazards During any emergency event, whether it be Ignition Source an earthquake, wildfire, or PSPS, district IS-1: Electrical Service Connections staff are expected to transition into and IS-2: Outside Utilities (PG&E) take on roles and responsibilities that are IS-3: District Facilities different from their normal duties. This IS-4: Leased Facilities applies district-wide; all staff join forces to IS-5: System Maintenance implement the District’s Emergency IS-6: Watershed Maintenance & Operations Plan. Adequate preparation and Management training is critical to ensure the efficacy and IS-7: Watershed Visitors continuity of emergency response activities. IS-8: Outside Contractors

Direct IH-5 Financial Security DH-1: Damage to Assets Regardless of the hazard reduction actions DH-2: Damage to Communications employed, it is possible that at some point System the district will suffer asset losses due to DH-3: Impacts to Physical Hydrology wildfire or other natural disasters. The DH-4: Source Water Quality associated cost to restore system operation DH-5: Vegetation could vary widely based on the extent and DH-6: Access to Facilities severity of the natural disaster and DH-7: Distribution System Contamination DH-8: Pressure Loss corresponding number of assets damaged. DH-9: Staff Safety For singular or localized impacts to one or DH-10: Visitor Safety two pump stations, existing capital improvement projects could be delayed to Indirect IH-1: Staffing pay for necessary repairs. For more IH-2: Public Safety Power Shutoff expansive impacts, such as damage to a IH-3: Fire Response & Suppression treatment plant, loss of an entire network IH-4: Staff Preparation & Training of pump stations, or replacement of IH-5: Financial Security contaminated distribution piping, the district would need to find alternative

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1 FEMA, 2013. Threat and Hazard Identification and Risk Assessment and Stakeholder Preparedness Review Guide. 3rd Edition. May 2018

2 EPA, 2003. Effects of Wildfire on Drinking Water Utilities and Best Practices for Wildfire Risk Reduction and Mitigation

3 PG&E, 2019. Pacific Gas and Electric Company Amended 2019 Wildfire Safety Plan. February 6, 2019

4 City of Napa, 2018. City of Napa Presentation on Natural Disaster Preparedness. ACWA 2018 Spring Conference. May 10, 2018

5 MMWD, 2014. Marin Municipal Water District 2012‐2013 Mt. Tamalpais Visitor Use Census and Survey

6 Neary, Daniel G. et al 2003. Hydrologic Effects of High Severity Wildfire: Learning from the Past and Preparing for the Future. USDA Forest Service, Rocky Mountain Research Station

7 Neary, Daniel G.; Ryan, Kevin C.; DeBano, Leonard F., eds. 2005. (revised 2008). Wildland fire in ecosystems: effects of fire on soils and water. Gen. Tech. Rep. RMRS‐GTR‐42‐vol.4. Ogden, UT: U.S. Department of Agriculture, Forest Service, Rocky Mountain Research Station. 250 p.

38 4. Mitigation

Introduction Mitigation is the second step in the 4.1 Existing Mitigation Actions emergency management process where The district currently implements a range of hazard reduction actions (mitigations) are mitigation actions that reduce the potential developed and implemented that will for ignitions and target direct and indirect prevent or reduce the probability of an wildfire hazards. The following section emergency event occurring or reduce the reviews existing mitigation actions in 11 damaging effects of unavoidable topic areas and concludes with a summary emergencies (Figure 4-1). Mitigations can of how each action targets the hazards include operational strategies, policies, identified in Section 3. programs, and ad-hoc best management practices that reduce the district’s Plans, Programs, & Procedures vulnerability to wildfire, increase water Red Flag Procedures infrastructure resilience, and in doing so, protect the community we serve. This Red Flag Warnings are issued by the section has three goals; to review existing National Weather Service based on district mitigation categories and actions, meteorological models and real-time identify data gaps, and develop additional observations that indicate when weather mitigation actions targeting the hazards conditions are most conducive for the identified in Section 3. spread of wildfire. When a red flag warning is issued MCFD notifies public park and land management agencies, including the

Figure 4-1: Threat Identification and Emergency Management Process

Threat Planning & Mitigation Response Recovery Identification Preparedness

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district, who determine if land use key facilities for system operation. restrictions should go into effect. When a Therefore, all vegetation management, Red Flag Warning is issued the district system maintenance, and watershed works collaboratively with MCFD, Marin maintenance activities are put on hold County Parks, and CA State Parks to unless critical to system operation. implement land closures and specific Red Image 4-1: Red Flag Warning & Watershed Closure Flag measures to avoid or reduce the impacts of wildfire (Table 4-1).

Table 4-1: Red Flag Measures

Close watershed access points  Sky Oaks entrance  Natalie Coffin Green parking lot  Leo Cronin parking lot

Suspend all watershed use permits Ban use of barbeques

Suspend work of outside contractors During Red Flag Events, staff at Sky Oaks are Post additional fire hazard signage in “Critical Status” (see Watershed Wildfire Operations in Section 6) which means Staff Type III engine they’re tasked with ensuring personal Patrol efforts focused on fire response protection equipment, supplies, and all fire Increase standby staffing levels suppression apparatus are ready for response. Staff stages the district’s dozer District staff close the watershed to and transport, readies the Type 3 engine, vehicular traffic to minimize the potential fills and checks the district’s water tender, for unintended ignitions. The closure and coordinates internally to organize applies to the general public, district extended or stand-by assignments. District contractors, special use permits, leased staff also communicate the closure to the facilities, and all outside contractors. The community in a number of ways; a lessee for the district-owned West Point Inn watershed closure banner is posted on the cancels all overnight lodging reservations. district’s homepage, a pre-recorded closure message is set on the watershed During red flag closures, only essential information line, wildfire hazard and closure district staff are permitted on the signs are placed at major entrances, and watershed which include law temporary signs are deployed in Fairfax. enforcement/public safety and staff accessing the water treatment plants and

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Vegetation Management Programs 1995 VMP Fuel Reduction Strategies The district performs regular vegetation management around all pump stations, 60-foot Wide Fuel Reduction Zone – tank sites, district-owned parcels, and at Increase evacuation safety, promote safe access for initial attack, and support control specific locations throughout the Plan Area of small fires along specific fire access to reduce fuel loads and mitigate the effects roads/trails. of wildfire. Roles and responsibilities are generally divided into watershed 200-foot Wide Fuel Reduction Zone – Increase evacuation safety, promote safe maintenance and facilities maintenance access for initial attack, provide an with the former completing vegetation opportunity to establish major fire control management activities on the watershed lines that minimize fire size and reduce the and the latter working primarily around likelihood of fires escaping the watershed along boundaries and key ridgelines. district assets off the watershed. Understory Burning – Reduce fuel loads and Vegetation Management on the Watershed slow the progression of fire on the south The district is currently transitioning its face of Mt. Tamalpais by burning understory vegetation management program activities vegetation. that addresses fire risk and fuels on the watershed. Before adoption of the The design and location of fuel reduction Biodiversity, Fire, and Fuels Integrated Plan zones (fuel breaks) were informed by a fuel (BFFIP) in October of 2019, vegetation inventory and fire behavior modeling. Using management actions were conducted in computer simulations and expert fire accordance with the 1995 Vegetation suppression and equipment knowledge, fire Management Plan (VMP). The VMP behavior specialists used table-top included prescribed burning and three exercises to infer where fuel reduction types of fuel reduction zones. It was zones would be the most effective in developed to specifically mitigate the supporting containment of simulated fires. effects of fire by physically removing fuel in This analysis led to the location of the fuel strategic locations to reduce the rate of reduction zones in the 1995 VMP and spread and provide containment and access subsequent 2019 BFFIP. Since 1995 the opportunities for initial attack operations. district has implemented and continues to The goal of the 1995 VMP was to maintain 900 acres of fuel reduction zones strategically place fuel reduction zones and including defensible space around district conduct understory burning to facilitate and third-party facilities and along critical response and suppression activities and service roads and ridgelines on the therefore limit the extent of wildfire. watershed.

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Image 4-2: Rocky Ridge Fire Road Before Fuel Reduction Table 4-2: Wildfire Mitigations in the BFFIP

Expand fuel reduction zones by 11% (45 Acres) Increase fuel reduction maintenance by 33% Treat 180 acres of diseased forest Complete 550 acres of broadcast burns Reduce Douglas-fir encroachment on 620 acres Image 4-3: Rocky Ridge Fire Road After Fuel Reduction In addition to implementing the BFFIP, the district also requires all lessees to conduct vegetation management in accordance with the State Fire Code (4907.1 and 4907.2). Each year, staff work with each leaseholder to review lease conditions and observe lessee-led fuel reduction activities to establish defensible space in accordance with state guidelines. District staff also In 2019, the district’s board approved the coordinates with PG&E subcontractors who BFFIP, a new vegetation management plan perform vegetation management along the that will guide vegetation management 14 miles of distribution and 3.4 miles of actions for the foreseeable future. The transmission lines on the watershed. BFFIP continues the management of Vegetation Management Around Assets strategic fuel reduction zones identified in The district is responsible for vegetation the VMP but expands vegetation management and landscape improvements management actions across the entire around all facilities (district offices, pump landscape to mitigate for wildfire. A stations, treatment plants, tank sites, and summary of key vegetation management communication system components). This wildfire mitigations goals included in the includes inspection and maintenance at BFFIP is provided in Table 4-2. In total, the over 200 sites in the WUI which are district anticipates the BFFIP will cost scheduled by the district’s enterprise approximately $13.7 million over the next 5 management system (Figure 2-4). In total, years. staff trims grasses, removes brush and shrubs, and eradicates non-natives on approximately 80 acres of district lands excluding access roads and easements. All sites are managed for vegetation each year

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and approximately 50% are inspected and the winter, early spring, or when conditions managed on a bi-monthly basis. Staff are not dry or windy. Work activities like assesses each location for hazardous trees leak repairs may use grinders, cut-off saws, that could damage assets and restrict and welding equipment but are often access and works to maintain defensible confined to roadways and trenches below space in accordance with CalFire ground and are already wet with overspray recommendations, where feasible. from the leak. The potential for an ignition However, in some circumstances in this scenario is extremely low so maintaining complete consistency with mitigation includes best management defensible space guidelines isn’t feasible practices that equip all vehicles with fire due to a variety of factors. In these cases extinguishers and training staff to suppress district staff strives to strike a balance any accidental ignitions. between aesthetics, adjacent landowner requests, and topographic constraints. In other situations, where work will occur Vegetation management typically begins in above ground and cannot be rescheduled May and is complete by the end of July. for lower risk periods staff use an informal hot work permit to categorize the type of Hot Work Procedures work, review ignition hazards, and then As summarized in Section 3, district staff select and implement best management routinely perform maintenance activities practices to minimize ignition potential. that have the potential to cause an ignition. Best management practices employed by These “Hot Work” activities include saw- staff when conducting hot work are cutting, welding, mowing, operation of summarized in Table 4-3 equipment and tools, and driving vehicles on unpaved roads with grassy margins. Table 4-3: Hot Work Best Management Practices

Hot Work Identification of hazard (sparks, fuel, etc.) Work activities such as saw-cutting, welding, mowing, and operation of combustion Communication of hazards to work group equipment that has the potential to cause Staging of fire suppression equipment an ignition. Equipment condition assessment

Fire watch: Dedicated watchperson during Although no formal district-wide hot work work with extinguisher and suppression program exists, district supervisors and equipment on hand. work crews implement informal processes Fire watch: Site inspection 30 minutes after and best management practices based on work Notify local fire department of activities and the anticipated risk and weather conditions location to mitigate ignition potential. If feasible, Pre-wet work area and immediate supervisors first seek to schedule hot work surroundings for periods of lower fire risk such as during

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Hot work on the watershed is primarily replacing these stream crossings is associated with vegetation management pertinent to the district’s ability to provide and in some circumstances facilities drinking water, recreational access, respond maintenance that may include use of hand to and fight potential wildfires, and mitigate tools, welding equipment, and prescribed post-fire impacts. fire. During the fire season such activities Image 4-4: Failed Culvert Blocking Deer Park Fire Road are completed with the district’s fire engines or water tender nearby to pre-wet the work area and immediate surroundings to reduce the ignition potential.

Image 4-5: District and MCFD Staff Performing Pile Burns on West Ridgecrest Boulevard.

In 2018, the district completed a stream crossing condition assessment on 724 culverts as part of a new asset management program looking to prioritize the In the case of pile and wide area burns, the expenditure of limited capital resources to district works with MCFD and the Bay Area maximize system resiliency. District staff Air Quality Management District to develop identified 40 culverts that are in a “failed” and implement burn plans that define the condition and are located along roads that work area, fuels, pre-burn containment provide access to critical system measures, required staffing and equipment, infrastructure such as transmission lines, and the acceptable meteorological transmission and distribution pumps, water conditions for burning to reduce the treatment plants, and emergency likelihood of an uncontrolled fire. access/egress. The district is in the process of replacing the failed culverts with Culvert Replacement Program When combined with easements on other corrugated metal pipe and concrete public and privately held lands in the Plan materials which, unlike plastic culverts, are Area, the District is responsible for expected to endure a wildfire. Without managing and maintaining over 700 stream incorporating fire resistant materials, crossings which include bridges, culverts, burned or melted culverts could restrict and rock fjords (crossings). Maintaining and access during fire response or cause

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significant erosion during post-fire winter windows, and damaged siding, cleans rainfall events. gutters, and performs other general carpentry and construction activities to In addition to replacing culverts with more maintain building envelopes; an important resilient materials, the district’s design factor in structure vulnerability. criteria for culverts has been upgraded to Maintenance activities at each facility are allow for the passage of wood and sediment typically performed on 1 or 2-year intervals for a 100-year flood event. Although this and are increased in frequency based on does not account for potential increased observations by staff in the water quality, discharge and sediment associated with corrosion, and mechanical and electrical moderate or high severity burns, the groups who visit sites more frequently. upgraded design criteria makes the district’s crossings and critical access routes more Operations Procedures resilient to fire by increasing the post-fire District staff takes proactive measures to operational performance of stream ensure the system is ready for potential crossings. disruptions. During the fire season and especially in advance of red flag warnings Road & Trail Management Plan and PSPS events staff top off (fill) all tanks The district manages approximately 90 to ensure they are at capacity. miles of roads and 60 miles of trails on the watershed which, in the event of fire, are Operations Maintenance Program the primary points of access for response District staff maintains system operating personnel. The district’s Mt. Tamalpais components such as pumps, valves, backup Road and Trail Management Plan was generators, and electrical system adopted in 2005 and is the document which connections. This includes preventative guides how roads are maintained to ensure maintenance procedures (maintenance consistent access protection of water plans) that are tracked and scheduled with quality, and preservation of the district’s enterprise management environmentally sensitive habitats. system. Typical routine maintenance activities include servicing, rebuilding, or Facilities Maintenance Program replacing pumps and motor components, District staff perform routine maintenance upgrading system connections, and general of roads and facilities to ensure cleaning and maintenance to ensure system uninterrupted access and that buildings components operate within required housing critical assets are protected from performance metrics. The primary goal is to the elements, including wildfire. Staff maximize service life and prevent grades access roads to tank and pump equipment failures. As part of general station sites, caulks and paints exterior operations maintenance, staff also inspects surfaces, replaces roofing material, electrical system components, makes

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modifications as necessary to maintain and With regard to fire regulations specifically, improve system reliability and safety, and Title 9 of the district code identifies the makes notes of any necessary facility regulations for use of water district lands. maintenance needs. The chapter includes a section (9.07) specifically targeting watershed visitor Fire Flow Improvement Program ignitions by limiting the use of fire to As described in Section 5, the district district-provided barbeques, and making it coordinates and implements a Fire Flow unlawful to use fireworks, smoke, or have Improvement Program to prepare for fire fires outside of provided barbeques. events by improving the capacity and accessibility to water for fire suppression Watershed Use Regulations efforts. By providing additional capacity and accessibility to water, the district is 9.07.01 Fires. No person shall light, build or increasing the potential that fire maintain a fire of any nature on district lands, except in permanent fixed barbecues, suppression activities can protect both camp stoves or fireplaces established by the district facilities and private structures district. The use of portable barbeques and throughout the Plan Area. camp stoves is prohibited.

Policies, Agreements, & Contracts 9.07.02 Fireworks. No person shall possess, bring onto, set-off or otherwise cause to Watershed Policies & Enforcement explode on district lands any firecrackers, The district’s Park Rangers patrol the skyrockets or other fireworks or explosives.

watershed daily from 7 am until one hour 9.07.03 Smoking. No person shall smoke on after sunset and have been an integral part district watershed lands at any time. of enforcing the district’s policies and ordinances that seek to preserve and In addition to enforcing watershed use protect the unique resource that is the regulations, rangers search for illegal foundation to the district’s mission. Rangers encampments and campfires, inspect serve a multitude of roles including barbeques for unextinguished coals, and enforcement of state laws and water are frequently the first responders to fires district regulations, responding to public on the watershed. As such, all field-level safety issues, providing initial attack on ranger vehicles meet either the Type 6 or wildland fires on the watershed, educating, Type 7 Engines standard. Due to their emergency medical response, search and limited water storage capacity, both Type 6 rescue and informing the public of and 7 Engines are considered quick responsible uses that are consistent with response units and are most effective in water quality preservation. suppressing small fires over short durations (< 10 minutes).

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Type VI Engine Contracts for work on the watershed Tank Capacity1 –150 Gallons integrate similar work period restrictions 1 Pump –50 gpm and best management practices to those

identified in Table 4-4. All Contractors and Type VII Engine Tank Capacity1 –100 Gallons use permit holders must follow a Fire Pump1 –10 gpm Prevention Plan which requires that fire suppression tools such as extinguishers, 1Minimum specifications backpack pumps, shovels, McLeods, rakes, District Contracting Policies and pitchforks be on site at all times.

The district utilizes contractors to complete Table 4-4: Select List of Contract Required Hazard pipe replacement, vegetation management, Reduction Actions and other work on watershed lands, district facilities, and throughout the Plan Area. Work suspension during Red Flag Warning During the project development phase, staff Radio and cell phone requirements for fire involved in procuring and organizing response contracts incorporate work period Vehicle, Equipment, & Tools restrictions and requirements to mitigate  Stay on roads and avoid parking in dry the potential for ignitions. grass  Clear areas around combustion equipment and exhaust Work period restrictions related to  Install and maintain spark arrestors potential ignitions are stipulated in the  Suppression equipment (water truck project contract documents (general and and/or extinguishers on site) technical specifications). Article 88 of the  Only non-metallic heads on weed district’s general specifications prohibits cutters  smoking on district watershed lands and Cool equipment before refueling open space lands and Section 01000 of the Welding technical specifications identifies required  Performed before 10 am hazard reduction actions (processes,  Clear 12-foot radius around welding site to mineral soil procedures, and best management  Wet ground and surrounding practices) the contractor shall employ. vegetation (Table 4-4). Contractors are also required to  Use a welding screen to control sparks monitor fire conditions by calling the MCFD  Water truck and dedicated fire watch fire condition hotline and adjusting their personnel work schedule accordingly. If a red flag warning is declared, contractor operations are suspended with no financial impact to the district.

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Summary of Existing Mitigation Action Categories

A summary of existing mitigation actions (by topic area) and targeted hazards is provided in Table 4-5

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Table 4-5: Summary of Existing Mitigation Actions (by Topic Area) & Targeted Hazards

Targeted Hazard

off

t

ty

Training

Visitor Safety Visitor

Damage to Assets Damage System to Communication Damage Hydrology Physical to Impacts Quali Water Source Vegetation to Facilities Access Contamination System Distribution Loss Pressure Safety Staff

eased Facilities eased

Fire Response & Suppression Response Fire Financial Security

Staffing Shu Power Safety Public & Preparation Staff

Outside Utilities Outside L Management & Maintenance Watershed Visitors Watershed Contractors Outside

District Facilities District Maintenance System

Electrical Service Connections Service Electrical

1: 2: 3: 4: 5: 6: 7: 8: 9: 10:

------

1: 2: 3: 4: 5:

1: 2: 3: 4: 5: 6: 7: 8:

- - - - -

------

Existing Mitigation Action Topic Area IS IS IS IS IS IS IS IS DH DH DH DH DH DH DH DH DH DH IH IH IH IH IH Red Flag Procedure ● ● ● ● ● ● ● Vegetation Management Programs ● ● ● ● ● ● ● Hot Work Procedures ● ● ● ● ● ● ● Culvert Replacement Program ● ● Road & Trail Management Plan ● ● ● Facilities Maintenance Program ● ● Operations Procedures ● ● ● ● Operations Maintenance Program ● ● ● ● Fire Flow Improvement Program ● ● Watershed Policies & Enforcement ● ● ● ● ● District Contracting Policies ● ● ● ● ●

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Focus Area

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4.2 Data Gaps & Additional Mitigation Warnings. Ordinance 9.07.04 already Actions allows the district to “close all or After a review of the existing data and designated portions of district mitigation actions there are a number of watershed lands to public entry”. This potential data gaps that could be pursued action would allow rangers to focus on and additional mitigation actions that could red flag procedures, and improve the be employed to improve overall system and district’s response to ignitions that may community resilience to wildfire. occur. Prioritized Vegetation Management Plans, Programs, & Procedures Establishing and maintaining defensible Red Flag Procedures space is a key component of mitigating the During Red Flag Warnings there are a impacts of wildfire on district assets and the number of potential procedures that could district’s ability to provide critical life be instated to mitigate wildfire. services during a wildfire event. Pump stations and tanks are more likely to survive  Cell phone service along Bolinas-Fairfax a wildfire event if defensible space is road is inconsistent, fire response times established and maintained. Approximately are limited, fire risk is high, and half of the required 100-foot defensible numerous fires have started in the space area around aboveground assets is general area. The district should not owned by the district (Figure 3-6). consider working with Marin County to Prioritizing defensible space inspections and close Bolinas Fairfax Road during Red projects within these areas is essential to Flag Warnings. This measure could be providing water to the surrounding employed with little additional cost as communities. With that in mind, the district gates at Ridgecrest and near Pine could: Mountain Fire road already exist and

could be closed to limit public access  Collaborate with local fire districts to during critical fire weather. prioritize defensible space inspections

and vegetation management around  Visitors continue to use the watershed critical assets. Inspections and during Red Flag Warnings which may enforcement should be prioritized stretch limited public safety staffing based on structure vulnerability, (law enforcement, EMS and fire anticipated site-specific fire behavior, response and suppression) and defensibility of the structure, and complicate watershed evacuation criticality of the asset. Prioritization may processes in the event a wildfire occurs. be based on the number of service Consider evaluating district policies to connections supported by the tank or close the watershed during Red Flag

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pump station in accordance with the projects that remove tanks from service district’s asset management program. or shut down water service during defined fire season, dry periods, red flag  Formalize a single point-of-contact and events, and impending PSPS events. process of communication to facilitate Fuel Reduction Zone Analysis collaboration with adjacent landowners. The fuel reduction zones created and This could include bill inserts for service maintained on watershed lands were connects adjacent to critical assets and developed as part of the 1995 VMP to limit a resources link on the district’s the rate of spread of wildfire. The analysis website. used fire behavior modeling based on

existing vegetation and 90-percentile fire  Complete a site-by-site analysis to conditions Therefore, the fuel reduction document and establish required zones in the VMP and BFFIP have been defensible space specifications at each selected to mitigate smaller fuel-driven district asset and develop a tracking and rather than wind-driven wildfires capable of reporting process and program to casting embers more than a mile ahead of a document vegetation management fire front. A potential data gap is that the activities performed. analysis did not directly test or analyze the

effect of proposed fuels treatment on fire  Review existing processes, procedures, behavior but instead relied on the and responsibilities for approving interpretation of model results and variances to established defensible anticipated effects of fuel reduction zones space specifications. on suppression capabilities. Operations Procedures  In order to better understand the As described above, the district does not effectiveness and optimize various fuel have an official operations manual that reduction zones on the watershed, the documents the processes and actions district could assess the performance necessary to prepare for high fire danger and basis of fuel reduction zones using and PSPS events. an updated fire and fuels model.  The district should develop formal Hot Work Procedures procedures regarding the level of tanks The district’s hot work procedures and during defined fire season, dry periods, processes have been effective in minimizing red flag events, and impending PSPS district-caused ignitions. Formalizing events. existing procedures, with enhancements,

could help further mitigate ignition hazards.  Review approach and develop procedures for capital and maintenance

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 The district should aggregate and  Permanently remove remote and formalize existing hot work procedures infrequently used barbeques at Laurell and integrate them with jobsite safety Dell, Barth’s Retreat, Rifle Camp, and plans. The plan should include a hazard Potrero Camp. level screening of proposed work activities that determines which  Pre-position fire extinguishers or water practices and procedures should be pails at picnic areas where barbeques employed based on the level of risk. For are present. Alternatively, consider example, open flame work within the installation of fire hose and housing WUI would require the highest level of within reach of barbeques. fire safety measures, including fire watch, pre-staged suppression  Install additional signage notifying equipment, and pre-notification of the visitors of legal use of barbeques local fire district. Lower risk hot work (briquettes only, no collecting such as saw-cutting or welding in wood/vegetation). trenched urban environments would have a lower level of required  Install additional fire conditions or fire mitigation. hazard signage at all gateways.

 The district should conduct a basic hot Culvert Replacement Program work training program each year in As discussed in Section 4.1, the district advance of fire season for all groups to keeps records of culvert characteristics on ensure staff are cognizant of and utilize the watershed. The current culvert formal hot work procedures. replacement program is focused on culverts Recreational Facilities that have failed and may impact future The district provides facilities for picnicking, access. One potential vulnerability not and barbequing. Watershed rangers currently considered is that some culverts frequently douse fires at picnic grounds and along critical access routes have been must check remote infrequently used replaced with plastic materials (e.g. barbeques at Laurell Dell, Barth’s Retreat, corrugated plastic pipe). Rifle Camp, and Potrero Camp. Because these facilities are located in remote  The district should conduct a review of locations, visitors often collect material to available culvert records along critical burn rather than packing in charcoal access routes, as defined by the asset briquettes. The following minor changes to management steering committee, to recreational facilities could be instated to determine the number of fire mitigate potential visitor ignitions. susceptible crossings.

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 Culverts that currently meet operational o Conducting annual fire risk requirements but are vulnerable to fire inspections for assets within the should be prioritized for replacement. WUI and;

Parking Improvements & Barriers o Capitalize on staff visiting assets to During high-use periods, visitors park perform maintenance. Require a vehicles along road margins, unofficial rapid fire-risk assessment element in parking spaces, and on entrances to all work orders when any personnel watershed fire roads. In these locations, dry visit an asset between March and grass can be ignited by exhaust systems and November of each year. At a vehicles can potentially block fire response minimum this should include personnel. The following action could be training staff on what risk factors to instated to mitigate potential visitor consider and development of a 1- ignitions associated with indiscriminate page assessment checklist. This will parking. effectively increase inspection  Identify and formalize all acceptable frequencies by capitalizing on staff parking locations by installing additional already visiting an asset. signage (parking and no-parking signs) and natural barriers.  Update Maintenance Plans o Include clearing pump station and  Increase enforcement activities for treatment plant roofs and gutters of parking in non-sanctioned areas. combustible material on all maintenance plan work orders.  Develop a GIS database of approved parking spaces to assist with o Include caulking gaps in eaves and maintenance tracking and response. covering of openings.

Facilities Maintenance Program The district utilizes an enterprise Formalized Coordination management system to schedule routine The district should continue to require facilities maintenance plans and to vegetation management and defensible coordinate other activities to ensure system space maintenance activities as a condition operation. The following elements should of leased properties and utility corridors. To be integrated into the existing work orders facilitate this process, the district could: for facilities maintenance plans and other district staff who routinely visit assets.  Formalize annual vegetation management/defensible space reviews  Increase facility inspection frequency with lessees and PG&E in the spring of by: each year to review vegetation

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management actions for the coming subsequently improved to reduce the summer. potential for electrical fires.

 The district should prepare a  Continue to request PG&E inspection comprehensive review of all power and maintenance records and track in sources and electrical system the district’s enterprise management components at district facilities. This system. This would allow the district to includes reconciling district and PG&E track and request additional records to identify the responsible party maintenance and/or inspections. for electrical system components (poles,

transformers, etc.) and develop  Request assessment of contents and maintenance plans, as needed. potential for ignition on all leased

properties (propane tanks, fuel tanks,  The district should incorporate, with etc.). already scheduled maintenance plans

and processes, a checklist to identify  When possible, update leases to require any components not in conformance an electrical system inspection and with current electrical code or which repairs to comply with current code and may be an ignition hazard. minimize the potential for electrical

fires.  Consider and prioritize projects that

reduce ignition potential  When possible, update leases to include (undergrounding, decommissioning, vegetation management of entire breaker/wire replacement, etc.) of premises – not just area where the district electrical connections and structure is located. facilities. Electrical System Review Structure Hardening Staff identified at least two circumstances A recent case-study identified that two- where the district is responsible for thirds of the structures lost in a San Diego electrical service connections (power lines area wildfire were caused by wind-driven and electrical infrastructure) after a PG&E embers that either directly or indirectly power drop. Given the complexity of the ignited the structures1. This suggests that in district’s system and lack of detailed addition to establishing defensible space electrical-related records for each asset, around an asset, a structure’s ability to there may be additional electrical service resist wind-driven embers is a key connections for which the district is component of its vulnerability. Structures responsible that should be inspected and that are made of combustible materials (wood siding, shake shingles, etc.) or have

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pathways by which embers can enter into Table 4-6: Available Pump Station Construction and Material Types the structure (vents, gaps, etc.) are more vulnerable. Structure hardening seeks to

reduce vulnerability by modifying or Gutters incorporating components that reduce the  Presence/absence potential of ignition as a wildfire Vents approaches a facility.  Presence/absence

Windows The California Building and Residential  Presence/absence codes, Chapter 7A and Section R327 respectively, have adopted new Construction Type construction materials and methods aimed  Block  Concrete to increase the probability that structures in  Metal high fire hazard zones can survive a wildfire.  Wood frame Hardening district assets (pump stations, Roof Material tanks, generator systems, bridges, power  Composition poles, and treatments plants) to improve  Laminate resistance to embers and radiative heat  Concrete  Foam would reduce asset vulnerability.  Metal Pump Stations  Tar/Gravel Most of the district’s pump stations were Siding constructed before modern building codes  Board/batten  Concrete targeting fire resistance were adopted and  Metal therefore include materials and  Plywood (T1-11) construction methodologies that do not  Block meet current building code requirements.  Metal The district maintains records on the  Stucco materials, construction type, and frequency Based on available information the of maintenance activities at each pump following actions could be implemented: station which could aid future efforts to evaluation and prioritize structure  Include consideration of fire risk and hardening actions. Staff reviewed the structure hardening actions when records to determine what information, if selecting pump station and tank sites. any, could be interpreted as factors of vulnerability to develop and select potential  Develop a ranking or prioritization mitigation measures. A summary of matrix of pump stations to receive available pump station construction type structure hardening based on fire risk, and material data are provided in Table 4-6.

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and structure materials (Table 4-6), and . As pump stations need replacement, consequence of failure. utilize non-combustible materials (concrete block and metal roofs)  Consider and evaluate required Treatment Plants structure hardening actions for each The district’s treatment plants are primarily asset in the prioritization matrix based composed of concrete and steel so the on professional technical expertise. At combustibility of the core water treatment minimum, implement the following infrastructure may not be the primary structure hardening actions: concern. However, all of the district’s water o Lowest Priority treatment plants have vents, windows, and . Install 1/8-inch screens over vents membrane roofing material that could be (where application of paint or other susceptible to and be penetrated by surface coverings may clog vents) blowing embers. Embers could make their and 1/16-inch where feasible per way into control and chemical storage CBC 706A rooms and cause substantial potentially life- . Caulk all gaps, joints, and threatening damage that would divert unscreened openings in siding, response resources during a fire. As such, blocking, etc. some level of structure hardening is o Medium Priority warranted especially considering the . Complete low priority actions consequence of a failed or damaged . Replace siding with non-combustible treatment plant. material (three-coat stucco, metal

siding, fiber cement board) per CBC Many of the minimum structure hardening 707A.3 actions for pump stations apply to . Replace roof with Class A treatment plants. However, because composition shingles treatment plants are so critical to the o Highest Priority system, all applicable structure hardening . Complete low and medium priority actions should be pursued including, but actions not limited to: . Replace roofs with non-combustible

material per CBC 705A  Installing 1/8-inch screens over vents . Add screens (bronze, pvc coated and 1/16-inch where feasible especially fiberglass or aluminum) around over openings that lead to control window exteriors rooms and chemical storage areas per . Replace windows with dual or three CBC 706A panel tempered glass per CBC 708A

. Replace exterior doors with non-  Replacing roofs with metal or other combustible material per CBC 708A non-combustible material per CBC 705A

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(Master Plan) indicates they are not  Adding screens (bronze, pvc coated required. See Section 5 for discussion of fiberglass or aluminum) around window a Master Plan to identify system exteriors capabilities.

 Replacing windows with dual or three  Remove and dismantle existing panel tempered glass per CBC 708A. redwood tanks that are permanently out of service.  Securing all roof and door openings with Sky Oaks Headquarters mesh After the Tubb’s fire in Sonoma County,

utilities attempted to deliver fuel to backup  Installing a fire sprinkler system that generators within the fire perimeter. could be controlled remotely (SCADA) to However, safety officials restricted protect treatment plants using raw or deliveries of propane due to the risk of treated water explosion to transport vehicles. The

district’s backup generator at Sky Oaks is  Installing shielding to enclose backup propane, and although it can last generator fuel storage tanks and approximately three days without refueling appurtenances. it is possible that fire activity could restrict Tank Sites fuel deliveries. In the event a fire is burning The district has replaced all but seven of its on the watershed, maintaining power at Sky redwood water storage tanks with more Oaks, which could be an operations center fire-resilient bolted, welded, and riveted for fire suppression forces, is essential. steel tanks. Although water tanks are Therefore, the district should consider the typically more resilient to wildfire due to following: the moderating effect large volumes of water have on burning materials, redwood  Coordinate with Ross Valley Fire district tanks are more vulnerable to wildfire than and MCFD to identify potential those made of steel and could be replaced restrictions to propane fuel deliveries or even removed to improve system through fire areas. If coordination resiliency. indicates fuel deliveries could be delayed by three days or more, replace  Replace the remaining redwood tanks Sky Oaks backup generator with a with bolted steel tanks. comparable diesel unit with greater capacity.  Remove redwood tanks from the system where subsequent analysis

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 Install additional shielding around district is positioned to benefit from a backup generator tank and portion of available federal assistance appurtenances. programs but does not currently meet eligibility criteria for pre-disaster (PDM) and Bridges & Crossings post-disaster (HMGP) hazard mitigation During the Tubb’s fire in rural Sonoma assistance. To be eligible for these funding County, many steel or wood supported programs a local jurisdiction must have a structures with wood decking caught fire Local Hazard Mitigation Plan (LHMP) and were subsequently impassable after completed by the time of award and the fire front passed. The district relies on approved by FEMA every five years. To similar structures to access critical facilities make the district eligible for pre- and post- including the Natalie Coffin Green, Bon disaster hazard mitigation funding the Tempe spillway, Nicasio spillway, Phoenix district should: Dam, Lagunitas Rock Spring Fire Road,

Soulajule bridges, and the Lake Lagunitas  Complete efforts to develop a LHMP spillway. The district also has water mains that are supported by bridges that are  Send appropriate staff to IS-1001: susceptible to wildfire. The following “The Public Assistance Delivery Model actions could be implemented to mitigate Orientation” to obtain training on damage to these facilities. available mitigation funding

opportunities.  Develop a database of water mains supported by bridge structures and Policies, Agreements, & Contracts categorize based on combustibility of Watershed Policies & Enforcement structure (wood, concrete, etc.) Current water district fire regulations clarify

that smoking and fireworks are not allowed  On district owned structures replace and that cooking is only permitted in wood materials with non-combustible barbeques, camp stoves, and fireplaces that elements. are provided by the district (WDO 9.07).

However, district rangers frequently  Install additional hydrants near critical observe visitors either importing or bridge facilities to facilitate structure collecting wood and burning it in district- protection. provided facilities. Burning wood, branches, Federal Disaster Assistance leaves, rather than charcoal briquettes, has As the district moves forward it should a higher risk of dispersing embers. Changes consider leveraging the district’s capital in watershed policies could mitigate this dollars to complete necessary mitigation hazard and improve enforcement projects before and after a disaster. The effectiveness.

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 Supplement district code 9.07.01 with a o Modify the definition of “Open description of which materials are Space” in the district’s technical allowed to be burned on watershed specification section 01000 to reflect lands and in district-provided facilities. fire hazard and risk rather than land For example, clarify that only charcoal use. Consider amending the briquettes may be used and that the definition to include high hazard import or collection of any woody, areas (WUI, district facilities, vegetative or combustible material is watershed lands, or CalFire high and not permitted. very high fire hazard severity zones). Develop polygon from available fire  Consider banning all use of barbeques hazard metrics to screen and during fire season. identify projects that will require this special consideration.  Supplement district code 9.07.01 to require that all fires be fully o Require a notification from the extinguished after use. Post signs and contractor 24 hours before hot-work develop education materials on how to and inspection by district staff fully extinguish fires. o For projects within high hazard  Modify district code 9.07.01 to allow areas that will be completed during rangers to cite violations as infractions fire season consider requiring each rather than misdemeanors, which contractor to develop a wildfire would make prosecutions more mitigation plan for review and expeditious. approval (by the district) prior to start of work that specifies the best District Contracting Policies management practices, processes, The district’s contracting policies have been and procedures the contractor will effective in minimizing ignitions associated employ to mitigate potential with district contractors. The following ignitions. The submittal should additional mitigation actions would reduce identify the potential ignition risks ignition hazards associated with outside (types of work), processes for contractors. avoiding inadvertent ignitions, and a  Review and make improvements to the list of fire suppression materials that district’s standard specifications to will be on site at all times. bolster and require adherence to wildfire best management practices, o For projects within high hazard including, but not limited to the areas that will be completed during following:

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fire season consider increasing  Require all permit holders to notify the contractor insurance requirements. district of anticipated work start date/time no later than 24 hours before Outside Contractors & Use Permits work commences. District staff work extensively with PG&E subcontractors and watershed use permit  District staff should perform work holders to review work areas, activities, inspections to confirm the fire access plans, and best management protection plan is in place. practices to reduce the potential for ignitions associated with vegetation Summary of Potential Mitigation Actions management, utilities maintenance, and other permitted activities. Despite these A summary of potential mitigation actions efforts staff identified that PG&E (by topic area) and targeted hazards is subcontractors often enter water district provided in Table 4-7. lands and complete vegetation management and maintenance with little There is considerable overlap between advance notification to district staff. The potential hazard reduction actions following measures would formalize identified in the Focus Areas of Mitigation, additional requirements and mitigate Planning & Preparedness, Response, and ignition hazards associated with outside Recovery. District staff has exercised contractors. discretion on how best to associate hazard reduction actions and each Focus Area,  The district should develop a Fire however, readers are encouraged to review Protection Plan to be followed by all the other sections of this report to better outside contractors and permit holders. understand the full suite of potential hazard The plan should identify the minimum reduction actions identified. required equipment and procedures to follow by activity type (mowing, See Section 8 for an initial list of vegetation clearing, use of combustion recommended actions. engines, etc.) For example, mastication

and mowing should require the presence of a water truck and pump, hand tools, and an established communication channel to communicate with the district’s point of contact.

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Table 4-7: Summary of Potential Mitigation Actions (by Topic Area) and Targeted Hazards

Targeted Hazard

off

t

Contractors

Safety

Visitor Safety Visitor

Damage to Assets Damage System to Communication Damage Hydrology Physical to Impacts Quality Water Source Vegetation to Facilities Access Contamination System Distribution Loss Pressure Staff

eased Facilities eased

Fire Response & Suppression Response Fire Financial Security

Staffing Shu Power Safety Public Training & Preparation Staff

Electrical Service Connections Service Electrical Utilities Outside Management & Maintenance Watershed Visitors Watershed Outside

District Facilities District Maintenance System

1: 2: 3: 4: 5: 6: 7: 8: 9: 10:

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Potential Mitigation Action Topic Area IS IS IS IS IS IS IS IS DH DH DH DH DH DH DH DH DH DH IH IH IH IH IH Red Flag Procedures ● ● ● ● Prioritized Vegetation Management ● ● ● ● Operations Procedures ● ● ● ● ● Fuel Reduction Zone Analysis ● ● ● Hot Work Procedures ● ● ● Recreational Facilities ● ● Culvert Replacement Program Parking Improvements & Barriers ● Facilities Maintenance Program ● ● Formalized Coordination ● ● ● Electrical System Review ● ● ● Structure Hardening ● ● ● ● Federal Disaster Assistance ● ● ● Watershed Policies & Enforcement ● District Contracting Policies ● Outside Contactors & Use Permits ● ● ●

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1 Maranghides & Mell, 2009. A Case Study of a Community Affected by the Witch and Guejito Fires. National Institute of Science and Technology Technical Note 1635. Available at: https://nvlpubs.nist.gov/nistpubs/Legacy/TN/nbstechnicalnote1635.pdf

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66 5. Planning & Preparedness

Introduction 5.1 Existing Planning & Preparedness Actions Planning and preparedness is an essential step in emergency planning that seeks to As part of its routine operations, the district identify the resources, processes, and is engaged in planning activities to ensure procedures necessary to respond to and treatment and delivery of water to its recover from a natural disaster such as customers. Although much of the planning catastrophic wildfire (Figure 5-1). The is focused on the operational components fundamental goal is to develop strategies of the water system, there are planning and and plans that enhance an organization’s preparedness actions that reduce the ability to provide services in the face of potential for ignitions and target direct and significant operational challenges. This indirect wildfire hazards. The following requires that each department and section reviews existing planning and associated personnel clearly understands preparedness actions in 16 topic areas and their roles and responsibilities in executing concludes with a summary of how each a plan of action before the event. In short, action targets the hazards identified in planning and preparedness actions increase Section 3. overall system resiliency by establishing Plans, Programs, & Procedures efficient, focused, and effective response Community Wildfire Protection Plan and recovery. In 2016, Marin County fire agencies working in collaboration with county, state, and federal land management agencies, and community members published the Marin

Figure 5-1: Planning & Preparedness and the Emergency Management Process

Threat Planning & Mitigation Response Recovery Identification Preparedness

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County Community Wildfire Protection Plan and enhancing existing significant biological (CWPP)1. The CWPP is a science-based resources. The management actions hazard, asset, and risk assessment described in the BFFIP include analytical performed using up-to-date, high resolution planning actions, and physical vegetation topography and fuels information combined management actions. The administration with local fuel moisture and weather data. actions include the inventorying of The assessment was focused on identifying biological resources and threats (e.g., areas of concern throughout the county and Sudden Oak Death), monitoring, and on modeling fire behavior scenarios to planning. The physical actions related to inform hazard reduction strategies. The vegetation management include fuelbreak CWPP provides the district and community construction and maintenance, weed with a robust scientific understanding of control, and habitat restoration, which assets at risk within Marin County by include improvements to forests stands providing fire behavior modeling data that structures, improvements to grasslands and the district can use to inform risk-based oak woodlands, reintroduction of special- decision-making regarding its assets. This status species, and meadow restoration. baseline data is also an important planning The BFFIP identifies four threats to water document for coordinating cross- storage and supply facilities as well as other jurisdictional strategies for addressing vital infrastructure, human lives, the wildfire hazards within Marin County. district, and private property, and the health of the ecosystems located within or Biodiversity, Fires, & Fuels Integrated Plan near district lands. The threats include (1) The Biodiversity, Fire, and Fuels Integrated fire, (2) invasive species or weeds, (3) forest Plan (BFFIP) describes actions that the disease, and (4) climate change. district will take to minimize fire hazards and maximize ecological health on its Fire Flow Improvement Program watershed lands in accordance with Board Fire Flow is the term firefighters use to Policy No. 7. describe how much water can be delivered by a water system through one or more District Board Policy No. 7 Fire Management hydrants to fight a fire at a specific location Goal “The District will manage its lands to prevent loss or to state the optimum amount (standard) of watershed resources from uncontrolled wildfire, of water flow firefighters require for a will carefully restore the role of fire in ecosystem theoretical fire at a specific location. The management, and will use fire as a tool for former is determined by a pipe's size, specific management objectives.” pressure, and internal condition and the latter is based on standards developed over The purpose is to define and guide the years of experience. To meet Fire Flow methods that will minimize the risk from standards, a water distribution system must wildfires while simultaneously preserving deliver large amounts of water in a short

68 SECTION 5 FOCUS AREA: PLANNING & PREPAREDNESS period of time, whereas for daily use, water projects, tank replacements, and treatment systems provide smaller amounts of water plant upgrades that improve the district's on a continuing basis. ability to respond to and support fire suppression efforts. Image 5-1: Upsizing Water Main for Improved Fire Flow Condition Assessment Program The vulnerability of pump stations, tank sites, and treatment plants is a function of anticipated fire behavior at a site and the material characteristics and condition of an asset. The district has compiled and retains records of facility characteristics that could be useful in identifying asset vulnerability including those identified in Table 5-1.

Table 5-1: Pump Station Characteristics

Construction Type (Brick, Concrete, Wood Frame) Gutters (Presence/Absence) In the aftermath of the Oakland Hills fire, on Roof Type (Composition, Wood, Metal, etc.) November 5, 1996, Marin County voters Windows (Presence/Absence) approved advisory measure L supporting a Vents (Presence/Absence) $75 parcel fee to establish a $4.5 million per Siding Material (Plywood, Block, Shiplap) year funding source to implement the Fire Flow Master Plan (FFMP). The purpose of In addition to keeping records of asset the FFMP was to improve firefighting material characteristics the district is in the capabilities and seismic reliability of the process of performing condition district’s water system by increasing assessments on all pump stations, tanks, pipeline flow rates and improving system and treatment plants. The condition components. The projects in the FFMP were assessment program will evaluate the identified by the Marin County Fire Chief’s performance of mechanical components, Association based on experience and condition of building structures, and hydraulic modeling of the district’s system. supplement district facility records such as The $75/year parcel fee was extended in the identification of ventilation opening 2012 and will be used to complete sizes, window types, electrical service additional Fire Flow projects through fiscal connections, defensible space, and other year 2031. To date, the program has funded characteristics that influence the over $110 million in pipeline replacement vulnerability to wildfire. Results of the

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facilities assessments can be used to  Determined the number and size of prioritize capital investments through the backup generators required to district’s asset management program and operate the water system; identify structure hardening actions that  Executed agreements to rent 25 would improve system resiliency. generators to supplement the 16 Public Safety Power Shutoff Program district-owned units for a cost of Pacific Gas and Electric has started to de- ~$555,000;

energize portions of the electrical grid  Rented spare fuel tanks and entered during extreme fire weather events to into fuel supply agreements; mitigate potential electrical system ignitions. PG&E determines which areas and  Reconfigured 27 pump stations to customers are affected based on several allow remote backup generator factors, including weather conditions such activation through the SCADA as Red Flag Warnings, high winds, and dry system;

conditions. Without sufficient planning, the  Installed solar panels and backup PSPS events have the potential to adversely batteries to provide standby power affect the district’s ability to treat, store, to critical control valves and SCADA and transmit water. components;

Image 5-2: Rental Generators Staged in Anticipation of a  Installed transfer switches at 4 Public Safety Power Shutoff pump stations and the corporation yard trailer to enable backup generator connections;

 Installed a transfer switch on the corporation yard emergency garage and set up a charging station for SCADA system batteries;

 Developed generator tender and servicing schedule;

The district completed the following actions  Developed and disseminated public in anticipation of the 2019 wildfire season outreach materials and to mitigate the effects of PSPS events2: communications regarding readiness and potential impacts to water  Conducted mock power shutdowns availability. at the corporation yard and administration building to identify impacts and capabilities;

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Emergency Operations Plan that disasters are rarely confined to a The district developed its current particular set of political or geographical Emergency Operations Plan (EOP) in 2013 boundaries and can exceed local fire to guide the organization’s response to protection capabilities. The MMAA seeks to extraordinary emergency situations provide the public with the highest level of associated with natural disasters and service when local agencies are technological incidents. The EOP is a overwhelmed. As such, if the district and preparedness document designed to be MCFD are overwhelmed and stretched read and understood before an emergency beyond their combined capabilities, MCFD and to be a reference during an event to can request additional resources through facilitate response activities. The EOP CalOES who administers the MMAA system. identifies potential threats, outlines emergency management policies, defines As a participating MMAA agency, district the district’s organizational structure during fire apparatus and personnel can technically an emergency, and assigns roles and respond to and support wildfire events responsibilities. The district’s EOP is throughout the state. However, through a designed to function in concert with the memorandum of understanding with MCFD, established emergency management the allocation and response of district fire structure at the local (County), regional apparatus is limited to the county. (operational area), state, and federal levels. Personnel trained in the Incident Command System (ICS) are, however, occasionally Policies, Agreements, & Contracts dispatched across the state to support Master Mutual Aid Agreement incident management activities. MCFD has the primary responsibility for fire response and suppression within all State Participation in the MMAA dramatically Responsibility Areas in Marin County. increases response capabilities and the Therefore, MCFD, along with municipal and potential level of protection of district special fire districts in the Plan Area (Table assets. When the MMAA resources are 1-1) are tasked with providing the resources deployed in the Plan Area, the district will and capabilities to protect district assets in partner with other agencies through the the event of a wildfire. Marin EOC to share information about assets and to coordinate the response and Through a Memorandum of Understanding recovery effort. (MOU) with MCFD, the district is a participant in the California Master Mutual Master Mutual Benefit Agreement Aid Agreement (MMAA) system; a well- The district and MCFD established a Master organized state-level program of mutual aid Mutual Benefit Agreement (MMBA) in based on the principles of resource sharing 2018. The agreement recognizes MCFD’s and cooperation. The system acknowledges primary responsibility for fire prevention

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and that the district has a specific need for watershed Park Rangers and Maintenance assistance with vegetation management staff at minimum must complete the activities such as prescribed burning, trainings in Table 5-2. construction and maintenance of fuel Table 5-2: Required Wildland Fire Training Courses breaks, and hazardous fuel reduction activities. The MMBA provides the Training Course Title Human Factors in the Wildland necessary contracting mechanism to utilize L-180 Fire Service county fire personnel at predetermined Introduction to the Incident ICS-100 rates in implementing the district’s Command System Basic Incident Command System vegetation management goals and ICS-200 effectively expands the district’s capabilities for Initial Response National Incident Management IS-700 to conduct vegetation management System, An Introduction activities. Wildland Fire Safety Training RT-130 Annual Refresher (WFSTAR) Training S-130 Basic Wildland Firefighter Training Staff training helps to build critical skills that Introduction to Wildland Fire S-190 responders need to function effectively Behavior during wildfire or natural disaster events. S-212 Wildland Fire Chainsaws

The following sections describe ongoing district training activities. Emergency Operations Center An organization’s Emergency Operations Wildland Fire Training Center (EOC) serves as the coordination hub In 2008, the district modernized its for an incident response. This facility firefighting training program so that it provides a central intelligence arena for would be compliant with established decision makers and response team professional standards and address the personnel to gather critical information, current performance expectations for coordinate response activities, and manage watershed firefighters. This includes personnel as an emergency situation training and position task books that meet dictates. All district staff are required to the standards of the National Wildfire work as disaster services workers in the Coordinating Group (NWCG) and California case of an emergency and select staff have Incident Command Certification System. All pre-determined roles in the EOC. The district employees with wildland firefighting district’s emergency operations center is duties are annually required to complete located at the district’s corporation yard in the 8 hour Wildland Fire Safety Training Corte Madera and is supplied by backup Refresher. The district keeps up to date power sources. records of all staff training and makes resources available under the Mutual Aid Agreement during wildfire incidents. All

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Fire Response Equipment & Infrastructure and equipment can connect to the spring- The district maintains equipment to ensure fed tanks via wharf hydrants and fill internal that initial attack and wildfire patrol water tanks rather than making longer operations can be carried out on watershed journeys to potable hydrants on the lands. Additionally, the district has fixed district’s distribution system which may be infrastructure on the watershed to assist over an hour away (one-way). Therefore, with wildfire response and initial attack. the spring tanks are particularly important for initial attack operations on small fires in Wildland Fire Equipment remote areas of the watershed when The district has wildland firefighting minimizing response times is critical. equipment staged at the Sky Oaks Ranger Station on the Mt. Tamalpais Watershed Table 5-4: Spring-fed Tanks on Watershed and at the Ranger Residence at Soulajule. Tank Sites Volume (Gallons) The district’s ranger staff patrols the Poison Spring1 20,000 watershed using trucks that also serve as Shafter Grade2 20,000 wildland firefighting engines to ensure Rock Springs 20,000 operational readiness in the case of a Rocky Ridge2 1,500 wildfire incident. In addition to the rangers Copper Mine 25,000 trucks the district has a Type 3 Fire Engine Liberty Gulch 20,000 Barth’s Retreat 500 and Water Tender that are critical pieces of Rifle Camp 10,000 equipment for wildland fire response. 1Poor condition, 2 Out of Service Table 5-3: District-owned Wildland Firefighting Equipment (Apparatus) In addition to spring tanks, the district also has approximately twenty wharf hydrants Apparatus Total Owned Type 3 Engine 1 located primarily along the eastern edge of Type 6 Engine 2 the watershed and also services over 7,400 Type 7 Engine 3 potable hydrants throughout the Plan Area. Water Tender 1 Local fire protection districts and MCFD Type 2 Utility 1 have access to a database containing the Dozer 1 Type 3 Portable Pump 4 location, connection size, calculated pressure, and available flow rates at each Spring Tanks & Hydrants potable hydrant in the distribution system. The district has 8 raw water storage tanks Wildfire Detection Cameras located throughout the watershed to assist To aid in early wildfire detection and with fire response (Table 5-5). The tanks are location efforts, MCFD operates wildfire located in remote locations, far away from detection cameras at 5 critical locations in the district’s water distribution system and Marin County and staffs volunteers on the are primarily filled by natural springs. East Peak of Mt. Tamalpais. The system of 7 During a wildfire event, response personnel

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cameras at 5 locations (Mt. Tamalpais, Mt. Pre-Positioning of Resources Barnabe, Big Rock Ridge and Point Reyes The district coordinates with MCFD to pre- Hill, and San Pedro) were upgraded in 2018 position wildfire suppression resources. This to include high definition, pan, tilt, and planning and preparedness action facilitates zoom capabilities, and advanced spatial an efficient and rapid response, especially algorithms to geo-locate fires. The fire during high fire hazard conditions. For cameras are available on the AlertWildfire3 additional detail on how the district pre- website which is run by the University of positions resources see Section 6. Nevada, Reno, University of California, San Backup Communications Diego, and University of Oregon. The The district has a number of communication cameras are monitored locally by MCFD systems set up to facilitate district Emergency Command Center and assist in operations. Primary communications discovering, locating, and confirming fire includes landlines between key offices and ignitions, accurately dispatching fire treatment plants, internet access to support suppression resources, monitoring fire email communication, cellular network to behavior, and enhancing situational facilitate phone calls while offsite or in the awareness. field, and radios on the Marin Emergency Weather Stations Radio Authority (MERA) to support Weather and climate are major factors in communication between and among local the development and spread of wildfires. Of and regional public entities. the three major components that influence The district has access to its own dedicated a fire’s environment (fuel, weather, and channel on the MERA system but can also topography), weather is the most important communicate more broadly with other and continuously changing. Weather MERA entities. MERA is comprised of elements that play the largest role in representatives from the County of Marin, wildfires are wind, relative all cities, towns, and fire districts in Marin, humidity/atmospheric moisture and, and other special districts including the temperature. The district owns a weather district. Ranger staff are also equipped high- station on the west peak of Mt. Tamalpais band frequency emergency radios that can (West Peak) and maintains, on behalf of be used if the MERA system is offline. MCFD, a second weather station on Carson Ridge. These two weather stations provide Summary of Existing Planning & local temperature, wind, and humidity Preparedness Actions measurements to inform land A summary of existing planning and management, water system operation, and preparedness actions (by topic area) and wildland fire suppression activities. the hazards targeted is provided in Table 5- 5.

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Table 5-5: Summary of Existing Planning & Preparedness Actions (by Topic Area) and Targeted Hazards

Targeted Hazard

off

t

Connections

Contractors

Safety

Visitor Safety Visitor

Damage to Assets Damage to Communication Damage Hydrology Physical to Impacts Quality Water Source Vegetation to Facilities Access System Distribution Loss Pressure Staff

eased Facilities eased

Fire Response & Suppression Response Fire Financial Security

Staffing Shu Power Safety Public Training & Preparation Staff

Outside Utilities Outside & Maintenance Watershed Visitors Watershed Outside

District Facilities District Maintenance System

Electrical Service Service Electrical

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Existing Planning & Preparedness Action Topic Area IS IS IS IS IS IS Management IS IS DH DH System DH DH DH DH DH Contamination DH DH DH IH IH IH IH IH Community Wildfire Protection Plan ● ● ● ● ● ● ● Biodiversity, Fires, & Fuels Integrated Plan ● ● ● ● ● ● ● ● Fire Flow Improvement Program ● ● ● Condition Assessment Program ● ● Public Safety Power Shutoff Program ● ● ● ● Emergency Operations Plan ● ● ● Master Mutual Aid Agreements ● ● ● ● ● ● Master Mutual Benefit Agreement ● ● ● ● ● ● ● ● Wildland Fire Training ● ● ● Emergency Operations Center Training ● ● ● Wildland Fire Equipment ● ● ● Spring Tanks & Hydrants ● ● ● ● ● ● ● Wildfire Detection Cameras ● Weather Stations ● ● ● ● ● Pre-positioning of Equipment & Resources ● Backup Communications ●

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5.2 Data Gaps & Additional Planning of landslides, erosion, and debris flows on & Preparedness Actions raw water and treatments plant operations is a data gap that could be further There are a number of potential data gaps investigated. that could be pursued and additional actions that could be employed to improve The district should consider the following: overall system resilience to catastrophic wildfire.  Conduct a thorough review of possible effects of post-fire sediment input and Plans, Programs, & Procedures debris into the district’s water supply Water Supply Planning reservoirs and develop a set of The district has the capability to divert mitigations and response actions water from up to 5 independent or separate including, but not limited to: sources including Bon Tempe, Alpine, Kent, o Post-fire actions to contain Nicasio/Soulajule reservoirs and the Russian and/or divert sediment from River aqueduct. The diversity of the erosion and debris flows; district’s water supply portfolio provides o Assessing the efficacy of system redundancy that can be leveraged treatment plants to continue to when a particular water source may need to operate with projected raw be avoided due to fire-related water quality water quality; impacts. For example a catastrophic wildfire o Investigate potential treatment that affects water quality at Kent Lake could enhancements to improve be mitigated by avoiding Kent diversions system resiliency. entirely or by mixing with alternate (Nicasio/Soulajule) sources. Similarly, the Water System Resilience Projects In the event a wildfire impacts Marin district could increase the amount of water County the district’s system will be tested. sourced from the Russian River system to Integrating additional redundancy through compensate for reduced treatment plant strategic capital infrastructure investments output. in treatment plants, transmission lines, Currently, the district has an understanding additional storage, and pump stations could of the effects of raw water quality on improve overall system resilience by treatment plant operations and improving operational capabilities. Potential performance based on typical conditions projects that could increase resiliency under and observed seasonal variability. However, certain natural disaster scenarios could the district’s source watersheds have not include those those summarized in Table 5- been significantly impacted by fire since 6. contemporary treatment facilities were installed. Therefore, the potential impacts

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Table 5-6: Potential Resiliency Projects Given the complexity of the district’s Projects Purpose Cost system, limited capital resources, and high Add new cost of potential resilience projects, the processes to treat district should ensure capital investments in broader range of resiliency projects, similar to those in Table Replace raw water $100 Treatment including higher 5-6 are well-informed and are directed Million Plants sediment, taste towards operational limitations and and odor control, vulnerabilities. and improved sludge handling.  The district should complete a Add storage at transmission and distribution Master treatment plants to mitigate for Plan study to better define day-to-day Treatment reduced $30 system capabilities, limitations, and Plant treatment plant Million Storage operational vulnerabilities. output and

increased demand.  Utilize results from the transmission Increase high level and distribution Master Plan study to High Level storage to meet $75 guide investments in potential Storage increased Million resilience projects to improve overall demand. New large system performance in certain diameter circumstances. transmission lines from existing Asset Specific Action Plans Transmission transmission $75 The district does not have asset specific Lines network to Million wildfire protection plans for any of its additional high level storage to critical infrastructure such as treatment meet increased plants, primary pump stations, and storage demand tanks. Where the consequence of fire New or upgraded damage or asset failure is high, the district pump stations and generators to should consider developing asset specific increase wildfire action plans within the updated Pump $20 operational Stations Million emergency operations plan, which outline capabilities (e.g. the strategy, approach, and available onsite bi-directional and increased resources to protect a facility. The district pumping) should work with County fire personnel to develop the plans for selected assets to function as the primary playbook for district and fire suppression personnel during a wildfire event. In addition to including plans

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SECTION 5 FOCUS AREA: PLANNING & PREPAREDNESS a strategy for protecting each facility during data gaps and key actions that should be an incident, methods for maintaining further evaluated to ensure uninterrupted services, and actions to take if the facility is delivery of water in the event of future PSPS damaged. events including:

Condition Assessment  Complete design and construction of a Currently in progress, the district’s permanent backup generator at the condition assessment program is projected San Geronimo Treatment Plant. to take approximately two years to complete before the full spectrum of asset  Install permanent backup generators condition information can be incorporated at key pump stations. into district decision-making processes. Once complete the condition assessment  Install a permanent backup generator data can be combined with risk factors such capable of providing power to the as anticipated fire behavior, structure entire administration building, Yard vulnerability (materials & construction), and Water Quality Lab. criticality (e.g. number of service connections), and consequence of failure to  Develop a new pump station standard prioritize where limited capital and that includes transfer switches and maintenance dollars should be invested. backup power sources. The district should:  Implement the lessons learned from  Complete the ongoing condition the 2019 PSPS event including, but not assessment program in parallel with a limited to those identified as Critical fire risk assessment that utilizes (Table 5-7). structure type (material) and fire risk Table 5-7: “Critical” Actions Identified After 2019 PSPSs (CWPP fire behavior data). Events

 Integrate the condition assessment data and fire risk factors with the Develop a print and electronic list of district’s asset management emergency cell numbers for all key staff framework. Develop backup contracts for fuel-delivery Construct larger EOC Public Safety Power Shutoff Program Test and upgrade EOC conference phones The district was successful in maintaining Formalize a staff call out procedure water to its customers during two Confirm/update password for employee hotline prolonged PSPS events in October of 2019. Develop procedure document to manually fill Through the PSPS planning and preparation tanks to 100% of capacity process the district identified a number of Develop generator site maps, directions, equipment requirements, and logistical guidance for each site.

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Emergency Operations Plan command center for specific issues on The district’s Emergency Operations Plan the watershed and throughout the (EOP) was last updated in 2013 and was service area. primarily developed to support operations and response activities associated with a Resource Identification & Protection In recent years land management agencies seismic event. The current EOP doesn’t have begun developing geospatial data specifically address roles, responsibilities, libraries or geodatabases of sensitive and action plans during a wildfire within the resources and critical infrastructure to service area or on the Watershed. share with first responders during a wildfire To increase the effectiveness of wildfire incident. The district does not currently response operations the district would have an official database of wildfire benefit from investing in a Wildfire suppression infrastructure or natural Response Plan as a component or chapter resources to avoid on the watershed. This in the district’s Emergency Operations Plan. data could help to ensure that wildfire A Wildfire Response Plan would provide response operations are carried out in a critical information to first responders, strategic and coordinated fashion and that identify roles and responsibilities, and they avoid and protect resources and would help to guide the district’s support of infrastructure to the greatest extent MCFD wildland fire fighting operations. This practicable. This can help with the recovery would help to limit impacts to district process by limiting the need for mitigation, facilities by identifying critical assets and restoration, and reconstruction of critical response actions for protecting those facilities. assets. It would also clearly define the staff  The district should develop a roles and responsibilities relating to geodatabase of natural resources and wildland fire fighting operations. The wildfire suppression infrastructure to district should consider: disseminate or guide fire response  Updating the Emergency Operations and activities. The database should Plan to include a section on Wildfire include: Response which may include personnel assignments, priority o Critical natural resource and water actions, watershed activities, infrastructure to avoid and protect evacuation procedures, etc. o Wildfire suppression infrastructure  The updated Emergency Operations (wharf hydrants, spring-fed tanks, Plan should identify the role of the engine turnarounds, fuel reduction district’s emergency operations center zones, etc.) as the central organizing and

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o Critical facilities on the watershed Watershed Modeling to protect The district does not currently have a hydrologic model of the Lagunitas, Nicasio, Much of the necessary data already exists or Soulajule watersheds. A hydrologic relating to sensitive cultural resources, model would help clarify the characteristics biological resources, and critical water and physical processes of source water infrastructure. However, one data gap that catchments, could be used to prioritize will require additional data collection and vegetation management actions that analysis would be the identification of protect and mitigate the effects of wildfire, infrastructure on the watershed, including and inform post-fire water planning by roads, turnarounds, access routes, fuel quantifying potential watershed response reduction zones, and confirmation of the to catastrophic wildfire, particularly as it number and location of wharf hydrants. relates to the control of sediment entering Wildfire Modeling the district’s water supply reservoirs. For Wildfire modeling is an inherently example burn severity and fire perimeter challenging exercise and is only a first maps can be used to predict changes in approximation of potential wildfire hydrology and identify potential behavior. The predictive power of fire and management actions to mitigate the effects fuels models are expected to increase as of fire. Fire initiated changes in hydrology vegetation assemblages are better can then be cross-referenced with system characterized and novel modeling methods capabilities to determine what actions are developed. For example, MCFD might be necessary to protect water and anticipates updating the fuels and fire- natural infrastructure. The district should behavior modeling in the CWPP based on consider: recently collected topographic and  Developing an integrated watershed vegetation data. The results of this updated model of the Lagunitas and Nicasio analysis could be used to prioritize creek watersheds and a separate vegetation management activities and model for the Soulajule system. vegetation inspections and inform wildfire resilience planning at the district. Policies, Agreements, & Contracts Agreements  The district should continue its As discussed above, there is some potential involvement with MCFD and utilize that sourcing additional water from the updated fire behavior modeling data, Russian River system could help as it becomes available, to inform compensate for reduced treatment plant planning efforts. output. Such water transfers would be most

effective if they were negotiated before a wildfire event such that water, as a

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resource, could be shared in similar fashion  Develop a Wildfire Response Plan as as wildfire suppression equipment. The an element in the district’s Emergency district should consider: Operations Plan to guide watershed response activities.  Developing projects and/or agreements with adjoining water  Based on an updated Emergency districts to increase operational Operations Plan, review and align staff capabilities and water source training requirements with anticipated redundancy, particularly after a responsibilities. natural disaster. Contracts  Based on anticipated roles and If the district seeks to be reimbursed by responsibilities, identify the required FEMA to pay for materials, labor, or services personal protection equipment (PPE) associated with an emergency event the necessary for key staff to respond to a contracts and procurement process used wildfire event. must adhere to federal standards. Setting  Consider purchasing and storing a up the appropriate contract language and limited supply of required PPE adhering to federal procurement processes equipment for key staff including is a critical element of wildfire planning and Nomex clothing, emergency fire preparedness and is discussed in Section 7. shelters, eyewear, respirators, etc. Training Emergency Operations Center Wildland Fire The district does not currently conduct The district has staff trained in wildland fire regular trainings for emergency events. fighting, however, training requirements Table-top drills and exercises would should be evaluated and aligned with the improve staff familiarity with roles and district’s anticipated responsibilities during responsibilities, hone skills necessary to a wildfire incident. Additionally, the district make expedient decisions, and identify any does not have a Wildfire Response Plan or weaknesses in existing facilities, operations, section in its Emergency Operations Plan or emergency operation plans. The district that clearly identifies roles and should consider: responsibilities to ensure all staff are prepared to act and support operations  Have all EOC staff complete the during a wildfire incident in a safe and minimum FEMA-recommended effective manner. In order to better prepare training (Table 5-8). for wildland fire the district should consider the following:

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 Table 5-8: Minimum EOC Trainings Table 5-9: Wildland Fire Equipment Age Class

Training Course Title Fire Apparatus Model Year IS-700B An Introduction to the National Type 3 Engine 1992 Incident Management System Type 6 Engines (2) 2010 IS-2200 Basic Emergency Operations Type 7 Engines (3) 2009, 2014, 2019 Center Functions Water Tender 2006 Type 2 Utility 2014  Completing bi-annual table-top EOC Dozer 2000 drills and exercises related to wildfire Type 3 Pumps (4) Varies and other natural disasters. Fire Response Equipment & Infrastructure  The district should review the condition of existing fire apparatuses Wildfire Fire Equipment The second edition of Managing Fire and identify necessary investments to Services by the ICMA states that “All fire ensure staff have the necessary service organizations should develop a equipment to safely carry out the needs assessment and amortization or initial attack of wildfire on the replacement schedule for their major watershed. equipment in anticipation of growth or Summary of Potential Planning & cutbacks, service life, obsolescence, Preparedness Actions maintenance costs, and so on.” Systematic A summary of potential planning and replacement of all emergency response preparedness action (by topic area) and the equipment ensures equipment is safe to targeted hazards is provided in Table 5-10. use and equipped with up to date technology. There is considerable overlap between potential hazard reduction actions Although the district’s wildfire response identified in the Focus Areas of Mitigation, equipment is operational and supports the Planning & Preparedness, Response, and current needs some of the equipment is Recovery. District staff have exercised reaching the end of its useful life and is in- discretion on how best to associate hazard need of replacement. Table 5-9 outlines the reduction actions and each Focus Area, current age of wildfire response equipment. however, readers are encouraged to review the other sections of this report to better understand the full suite of potential hazard reduction actions identified.

See Section 8 for an initial list of recommended actions.

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Table 5-10: Summary of Potential Planning & Preparedness Actions (by Topic Area) and Targeted Hazards

Targeted Hazard

off

t

ty

to Facilities

Maintenance

Visitor Safety Visitor

Damage to Assets Damage System to Communication Damage Hydrology Physical to Impacts Quality Water Source Vegetation Access Contamination System Distribution Loss Pressure Safety Staff

eased Facilities eased

Fire Response & Suppression Response Fire Financial Securi

Staffing Shu Power Safety Public Training & Preparation Staff

Outside Utilities Outside Management & Maintenance Watershed Visitors Watershed Contractors Outside

District Facilities District System

Electrical Service Connections Service Electrical

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Potential Planning & Preparedness Action Topic Area IS IS IS IS IS IS IS IS DH DH DH DH DH DH DH DH DH DH IH IH IH IH IH Water Supply Planning ● ● ● Water System Resilience Projects ● ● ● ● ● ● Federal Disaster Assistance ● ● ● Asset Specific Action Plans ● ● ● ● ● Condition Assessment ● ● ● Public Safety Power Shutoff ● Resource Identification & Protection ● ● ● Wildfire Modeling ● ● ● ● Watershed Modeling ● ● ● Jar Testing ● Agreements ● ● Contracts ● ● Wildland Fire ● ● ● Emergency Operations Center ● ● Wildfire Response Equipment ● ● ● ● ●

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1 Marin County Community Wildfire Protection Plan, 2017 2 Update on PG&E’s Public Safety Power Shutoff Program, Staff Report, September 26, 2019, Marin Municipal Water District Operations Committee 3 Alert Wildfire Website: http://www.alertwildfire.org/

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6. Response

Introduction 6.1 Existing Response Actions

Response is the step within the emergency The district currently has a range of management process (Figure 6-1) where an response guidance documents and entity addresses short-term, immediate processes to support specific facilities and effects of a disaster. The primary focus is to operations during an emergency event. The limit the loss of life and property, personal district is also a part of local, regional and injury, and stem the immediate effects of state emergency response organizations. an emergency. These emergency response networks combined with the district facility-focused Response activities are contingent on response processes are critical to ensuring a implementing planning and preparedness coordinated response during a wildfire actions before an emergency event occurs. incident. The following section outlines Planning and preparing for an emergency existing response actions in 10 topic areas incident ensures district staff and and concludes with a summary of how each contractors have the necessary equipment, action targets the hazards identified in training, and logistical information to Section 3. respond to an emergency. During a wildfire incident staff would be involved in a variety of response operations relating water infrastructure, watershed lands, emergency water supplies, communication, and public safety.

Figure 6-1: Response and the Emergency Management Process

Threat Planning & Mitigation Response Recovery Identification Preparedness

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SECTIONFocus Area 6 3 FOCUS AREA: RESPONSE

Plans, Programs, & Procedures District Emergency Operations Center  Mutual aid As described in Section 5, in the event a A system for obtaining additional wildfire impacts district infrastructure, the emergency resources from non- district’s general manager may activate an affected jurisdictions. Emergency Operation Center (EOC) to  Operational Area Concept coordinate response activities. When activated, the district EOC is a central County and its subdivisions to coordinate damage information, command and control facility responsible resource requests and emergency for carrying out emergency response and response. management on the watershed and Watershed Wildfire Operations throughout the service area to ensure the The district has been involved with wildland continuity of district operations. firefighting since 1917, when the park Standardized Emergency Management System ranger program was established, in part, to As a result of the 1991 East Bay Hills Fire in respond to and extinguish wildfires on the Oakland, Marin County implements the watershed. Although an official wildfire Standardized Emergency Management response plan does not exist, staff identified System (SEMS), which is the cornerstone of the operational procedures and processes California’s emergency response system that are currently implemented. and the fundamental structure for the District Park Rangers and Watershed response phase of emergency Maintenance staff are trained in wildland management. The system unifies all firefighting and would most likely be the elements of California’s emergency first on scene if a vegetation fire broke out management community into a single on the district’s watershed lands. Currently, integrated system and standardizes key the district has twelve full-time certified elements. (red-carded) firefighters, whose training SEMS incorporates: meets the standards of California Incident Command Certification System and the  Incident Command System (ICS) National Wildfire Coordinating Group1 who A field-level emergency response are prepared and equipped to respond to system based on management by wildfires on the watershed. Their role is to objectives. respond to the scene with a district fire  Multi/ Inter-agency coordination apparatus, assess the situation and report Affected agencies working together to the incident to MCFD, request additional coordinate the allocation of resources district resources (if needed), and secure and emergency response activities. the scene. Once MCFD arrives on-scene MCFD would take over the incident

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SECTION 6 FOCUS ARREA: RESPONSE command or establish unified command 2). The SCADA system allows the district to with the district. District Park Rangers and monitor, gather and process real time water maintenance staff would continue to assist infrastructure data to inform operations. with fire suppression and initial attack until The operations center is staffed 24 hour a called off by MCFD. With the assistance of day. Staff have a direct line to 911 the contract Deputy Sheriff, staff would be emergency response and monitors the deployed to evacuate watershed visitors Marin Emergency Radio Authority (MERA) and attempt to prevent further public system. access. All watershed access points would Staff in the Operations Center are a central be immediately closed to non-emergency support system for the district’s field personnel. operations and response activities. In the Pre-positioning of Resources event of a wildfire, until the EOC is The district, in coordination with MCFD, deployed, the Operations Center monitors weather and fire conditions to coordinates with field staff and emergency determine if equipment needs to be staged response agencies to ensure that water or mobilized to strategic locations to reduce services are maintained to support first response times. For example, during a Red responders and community needs and relay Flag Warning, district equipment is staged critical information to the County. in easy to access locations and staff are on Figure 6-2: Diagram of simple SCADA system. hand to mobilize equipment for initial response and attack. Staff coordinates with local and state fire officials as necessary to facilitate resource sharing. In addition to pre-positioning of equipment, during wildfire season the district sends out daily watershed crew assignments, which identifies where wildfire suppression equipment is staged on the watershed and assigned roles and responsibilities. In Marin County Emergency Operations Center addition, all watershed rangers are In the event of a countywide incident the equipped with wildland fire engines and Marin County Operational Area Emergency patrol the watershed during wildfire Operations Center (Marin EOC) would be season. initiated and assigned district staff District Operations representatives would be given emergency The district has an Operations Center management responsibilities. The Marin supported by a Supervisory Control and EOC would facilitate a coordinated Data Acquisition (SCADA) system (Figure 6- response under direction of the Director of

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Emergency Services and designated staff alternative water sources, home treatment from local agencies. The level of Marin EOC options, and updates as needed. staffing would vary depending upon the Emergency Water Service Operations scale and specifics of the emergency During a wildfire the district’s EOC would situation. coordinate wildfire response with MCFD to  Marin County Operational Area EOC ensure that water is available to meet fire Marin Commons suppression needs in affected areas. The 1600 Los Gamos Drive, EOC would identify critical facilities within San Rafael, CA 94903 the vicinity of the fire that need to be protected in order to continue water Incident Management Team services. The EOC would be monitoring the The district’s EOC is composed of a system and coordinating system operations designated Incident Management Team with field crews. (IMT) made up of staff from different departments. Staff have predetermined In the event that a service area is impacted roles and responsibilities. In the event of an by a wildfire it may be necessary to make emergency the IMT would be deployed in operational adjustments to protect water the district’s EOC. Some IMT members quality, increase pressure in another service would be assigned as district area, or shut down parts of the system. The representatives in the Marin County EOC to district’s EOC would coordinate and provide a direct link between the district complete field reconnaissance, EOC and the emergency response efforts of infrastructure assessments, operational local and state agencies. adjustments and emergency communication. Emergency & Community Notifications The district coordinates public notifications Polices, Agreements, & Contracts through the district website, social media, CalWARN and the County Office of Emergency In addition to requesting resources and Services who have access to six emergency support through the Marin EOC, the district 2 notification systems During a wildfire can obtain water infrastructure specific event when water quality and human support from the California Water health could be impacted, it may be Water/Wastewater Agency Response necessary to issue a health advisory that Network (CalWARN). As a participating provides guidance and recommendations to member in CalWARN, a coalition of water water customers on how to protect their and wastewater agencies which provide health if the district’s EOC determines that mutual aid and mutual assistance when a there may be water quality issues within member utility agency requires resources the system. Advisories would also be used beyond their normal capabilities to to inform customers of system outages,

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SECTION 6 FOCUS ARREA: RESPONSE reinstate critical life services (water and can be communicated directly with member wastewater), the district can request agencies while larger complex events may mutual aid and mutual assistance from over require coordination through regional 380 CalWARN members across the state. CalWARN committees.

Mutual Aid Participation in the CalWARN system Resources shared without expectation of effectively increases the district’s response reimbursement. capacity and improves the pace of recovery Mutual Assistance efforts; especially for more localized threats Resources shared with an expectation of reimbursement such as wildfire.

Summary of Existing Response Actions Requests may include service crews and A summary of existing response actions (by equipment to fix leaks while district staff topic area) and the hazards they target is tend to emergency infrastructure repairs or provided in in Table 6-1. requesting pumps, generators, and communications equipment to restore system operation. Basic requests

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Table 6-1: Summary of Existing Response Actions (by Topic Area) and Targeted Hazards

Targeted Hazard

off

t

Visitor Safety Visitor

Damage to Assets Damage System to Communication Damage Hydrology Physical to Impacts Quality Water Source Vegetation to Facilities Access Contamination System Distribution Loss Pressure Safety Staff

eased Facilities eased

Fire Response & Suppression Response Fire Financial Security

Staffing Shu Power Safety Public Training & Preparation Staff

Outside Utilities Outside Management & Maintenance Watershed Visitors Watershed Contractors Outside

District Facilities District Maintenance System

Electrical Service Connections Service Electrical

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Existing Response Action Topic Area IS IS IS IS IS IS IS IS DH DH DH DH DH DH DH DH DH DH IH IH IH IH IH District Emergency Operations Center ● ● ● ● Standardized Emergency Management System ● ● ● Watershed Wildfire Operations ● ● ● ● Pre-Positioning of Resources ● ● ● ● ● ● District Operations ● Marin County Emergency Operations Center ● ● ● ● ● Incident Management Team ● ● ● ● Emergency & Community Notifications ● ● ● Emergency Water Service Operations ● CalWARN ● ● ● ●

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6.2 Data Gaps & Additional Response to the broader community. In order to Actions facilitate MCFD’s response to wildfire The district responds to unanticipated events and protection of water events on a regular basis and is well infrastructure, the district should develop a equipped to adjust operations and staffing prioritized list of assets to protect. The list to respond to a range of incidents. Through should also be accompanied by a GIS proactive planning with this document and database of facility locations. updating and maintaining the district’s Facility Assessment Prioritization Emergency Operations Plan, the district can The district does not have established establish technical skills, processes, and guidelines for prioritizing facility guiding documents that will help to assessments immediately after an minimize potential impacts to water emergency event when the condition and services and the community during a operational capabilities of assets are wildfire event. Furthermore, the district has unknown. Including a Facility Assessment an important role to play during the Priority list, as part of an updated response to ensure that watershed visitors Emergency Operations Plan would help are safe, facilities are protected, and the focus assessment resources on the district’s flow of water is maintained to the most critical infrastructure to ensure community and first responders during a operations are restored as quickly and wildfire incident. efficiently as possible without compromising public safety. After a review of the existing data and response actions there are a number of District Emergency Operations Center potential data gaps that could be pursued The emergency operations center is not and additional response actions that could currently equipped to support long-term be employed to improve overall system emergency response operations – the resilience to wildfire. structure housing the Yard Training room does not meet current seismic standards Plans, Programs, & Procedures and is limited in space. The technology Response Prioritization could be updated to ensure that the district The district owns, operates, and maintains has additional system redundancy and water infrastructure assets across the entire capacity for staff to support emergency Plan Area. Proactive planning to develop response operations. The district should asset specific action plans is discussed in consider the following: Section 5. Implementation of the action plans and the resources dispatched to  Review the current emergency protect specific assets should be based on operations center from the context the consequence of failure (i.e. number of of the updated Emergency service connections impacted) and impact Operations Plan to ensure it can

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meet functional requirements with a  Should identify an authorized district specific focus on technology, space, staff and alternates for all and structural improvements. coordination and administration with

CalWARN.  Update or construct a new EOC that meets operational requirements.  Ensure the district is meeting the Emergency Water Service Operations minimum member utility As part of an updated EOP, the district responsibilities3. should evaluate emergency water service operations and invest in equipment and  Ensure the authorized official and infrastructure to support response and alternate review the CalWARN recovery operations. Lessons learned from operations plan, attend meetings and the North Bay Earthquakes identified trainings, and understand how to Emergency Water Fill Stations at fire activate CalWARN. hydrants near public transportation hubs as an important service that could be  Review available resources from deployed quickly during an emergency nearby partner agencies in relation to event. The district would benefit from district capabilities and potential having parts stockpiled to support needs. emergency water services at fire hydrants. Investments in equipment such as a potable  Develop a contact list of local and water tender, or a contract to lease one regional CalWARN contacts that following a natural disaster, would allow should be incorporated into the the district to deliver water to impacted district’s updated emergency areas. Investments in emergency water operations plan for quick reference. distribution systems prior to an emergency Training event will help the district better serve the Emergency Response Training community and mitigate impacts during the Natural disasters are not an everyday response and recovery process. occurrence and are not something that all Policies, Agreements, & Contracts district staff are trained to support and CalWARN respond to. However, all staff are CalWARN has proven to be an excellent designated as disaster services works per resource for water and wastewater California Government Code (Title 1, agencies throughout the state when Division 4, Chapter 8, Section 3100). District responding and recovering from disasters. staff should be completing designed and In order to maximize the benefit of routine trainings on the updated Emergency CalWARN the district could: Operations Plan to ensure all staff are

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SECTION 6 FOCUS AREA: RESPONSE adequately prepared to respond to Summary of Potential Response Actions emergency service needs. A summary of potential response actions (by topic area) and targeted hazards is Rangers and Watershed Maintenance staff provided in Table 6-2. are trained and certified in wildland firefighting. During wildfire season Ranger There is considerable overlap between staff coordinate a monthly refresher potential hazard reduction actions training on the use of wildfire apparatus identified in the Focus Areas of Mitigation, and equipment. Additionally, Rangers Planning & Preparedness, Response, and coordinate with other local emergency Recovery. District staff have exercised response organizations and hold joint discretion on how best to associate hazard trainings annually. An updated Emergency reduction actions and each Focus Area, Response Plan with a Wildfire Response however, readers are encouraged to review section will improve the integration of the other sections of this report to better watershed staff with wildfire firefighting understand the full suite of potential hazard capabilities, coordination with the district reduction actions identified. EOC, and MCFD as the lead firefighting See Section 8 for an initial list of agency. recommended actions.

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Table 6-2: Summary of Potential Response Actions (by Topic Area) and Targeted Hazards

Targeted Hazard

off

t

Visitors

Loss

Visitor Safety Visitor

Damage to Assets Damage System to Communication Damage Hydrology Physical to Impacts Quality Water Source Vegetation to Facilities Access Contamination System Distribution Pressure Safety Staff

eased Facilities eased

Fire Response & Suppression Response Fire Financial Security

Staffing Shu Power Safety Public Training & Preparation Staff

Outside Utilities Outside Management & Maintenance Watershed Watershed Contractors Outside

District Facilities District Maintenance System

Electrical Service Connections Service Electrical

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Potential Response Action Topic Area IS IS IS IS IS IS IS IS DH DH DH DH DH DH DH DH DH DH IH IH IH IH IH

Response Prioritization ● ● ● ● ● ● ● ● ● ● ● ● ●

Facility Assessment Prioritization ● ● ● ● ● ● District Emergency Operations Center ● ● ● ● ●

Emergency Water Service Operations ● ● ● ● CalWARN ● ● ● ●

Emergency Response Training ●

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1 Fire Qualified Staff 4/20/19

2 Marin County Sheriff’s Office. Public Emergency and Warning Tools. https://www.marinsheriff.org/services/emergency-services/emergency-alert-and-warning-tools Accessed: November 12, 2019

3 California Water/Wastewater Agency Response Network (CalWARN) Mutual Aid/Assistance Operational Plan, 2009 pp. 4

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104 7. Recovery

Introduction 7.1 Existing Recovery Actions Recovery is the final step in the emergency The district currently implements a range of management process where the primary recovery actions aimed at reinstating and focus is restoring or improving pre-disaster restoring the water system after a wildfire. community services and operational The following section discusses existing capabilities (Figure 7-1). The key recovery actions in fourteen topic areas and differentiator between response and concludes with a summary of how each recovery is that recovery occurs after action targets the hazards identified in immediate threats to life and property have Section 3. passed and crews can safely begin the process of assessing damage and making Plans, Programs, & Procedures necessary repairs to operationalize Disaster Service Workers components of the water system that were As mentioned in Section 5, all district staff damaged. Recovery can be the longest are designated as disaster service workers stage in the emergency planning process, and can be reassigned to duties that can take years before systems and support recovery efforts if a district communities attain pre-disaster emergency is declared. This could include capabilities, and includes seeking and reassigning staff to the district Emergency obtaining financial assistance to help pay Operations Center (EOC), coordinating with for response, repairs, and improvements. outside entities, and performing infrastructure assessments. To facilitate the use of disaster service workers, the district maintains a hotline where all staff call in to Figure 7-1: Recovery and Emergency Management Process

Threat Planning & Mitigation Response Recovery Identification Preparedness

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determine if they need to report, where to district’s financial standing. To that end, the report, and if appropriate, how to notify district utilizes an enterprise management district managers of extenuating system which has the capacity to track circumstances that preclude them from labor, materials, equipment, and outside reporting. contracts and associate them with specific stages of emergency events. To accomplish Operations & Maintenance Staff this, the district’s finance team establishes The ability to staff adequate skilled unique codings that are used by staff to log personnel during the recovery phase is labor hours, purchases of materials, and essential to restoring system operation and contracts to capture the nature and extent service. The normal duty and core function of resources expended. This operational of operations and maintenance staff is to capability allows the district to organize and respond to emergency situations and track response costs for future ensure system operation twenty-four hours reimbursements. a day, seven days a week. Therefore, even during normal (non-emergency) Marin County Emergency Operations Center circumstances staff are already on standby The district is in the Marin County to assist in the recovery process. Staff is Operational Area, one of sixteen counties available and can be reallocated as needed within the CalOES coastal region who between work groups to repair leaks and coordinate emergency planning, response, the electrical and mechanical systems that and recovery services at the county level transmit and distribute water. If a district (Figure 7-2). As the Marin County emergency is declared, standby crews Operational Area administrator, the Marin would be immediately mobilized and County Sheriff’s Office of Emergency supplemented with additional staff and Services (MarinOES) coordinates recovery contractors as conditions warrant. actions for eleven jurisdictions and over 300 Therefore, the organizational structure and special districts. job specifications of maintenance and operations staff positions the district to staff personnel integral to recovery efforts.

Enterprise Management System Recovering from a wildfire event can be costly and extremely complicated to track and account for expenditures. However, accurate accounting is essential if the district expects to seek state or federal disaster assistance and understand how response and recovery events will affect the

106 SECTION 6 FOCUS AREA: RECOVERY

Figure 7-2: CalOES and CalWARN regions (Figure 7-3). The district sends staff to the EOC to maintain consistent communication and act as a liaison between the district’s EOC (see below) and countywide response and recovery efforts. District staff at the Marin EOC relay critical information including the extent of service outages and expected duration of service loss, provide status updates, and request resources, mutual aid, and assistance to facilitate district efforts at restoring service. Figure 7-3: Marin County EOC as Hub of Response & Recovery Activities MarinOES developed an emergency San recovery plan (ERP) that identifies the Anselmo Marin District objectives, assumptions, constraints, roles County and responsibilities, and strategies for Corte recovering the county’s infrastructure Tiburon Madera (including water) in an emergency event. Marin EOC Despite a lack of detailed recovery plans (Sheriff)

Mill specific to water infrastructure, the county Fairfax Valley ERP has an objective of immediately restoring utilities or providing temporary San MCFD services and capabilities for basic utilities Rafael such as water service. The ERP assigns the Novato task of assessing and restoring services to each utility provider. Although the district is The Marin EOC coordinates and responds to responsible for restoring system capabilities the requests of each jurisdiction and is the it can work within the established first gateway for obtaining supplemental emergency planning framework to request support. Requests for assistance could additional resources, as needed, to include clearing roads of fire debris or establish temporary services and facilitate parked vehicles to coordinating access to the recovery process. evacuated areas to enable the assessment When an event warrants an “emergency” and repair of district facilities. Requests status, the MarinOES opens an emergency could also include temporary sources of operations center (EOC) to act as the water for affected populations, fuel centralized hub for coordinated response deliveries for backup generators or other and recovery actions across the county supplies and equipment.

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For more significant events that require After a significant wildfire event CalFire resources beyond the capabilities of local completes general suppression repair Marin County jurisdictions, the district can activities which replace infrastructure request regional resources through the damaged during fire suppression activities. Marin EOC (Figure 7-4). CalFIRE pays for and repairs damaged fences, mastication of burn piles, closure of Figure 7-4: EOC Communication Channels dozer lines, installation of water bars along roads and dozer lines, and removal of any Marin CalOES Distict Operational Regional EOC hazardous trees along primary access Area EOC routes.

After suppression repairs are completed District Emergency Operations Center As described in Section 5, in the event a CalFIRE’s Watershed Emergency Response wildfire impacts district infrastructure, the Team (WERT) coordinates and completes a district’s general manger may activate an rapid assessment of values at risk due to EOC to coordinate response activities at the debris flow, erosion, flooding, rock fall, and district. In the case of a widespread other post-fire hazards. The WERT is catastrophic wildfire affecting numerous composed of engineers, soils scientists, assets, the district’s EOC would likely stay hydrologists, and geomorphologists who activated for the initial recovery phase until take a life-safety and property focus to temporary services are reestablished. The identify hazards and recommend mitigation district EOC would organize assessment actions to protect buildings, infrastructure, teams, prioritize system repairs, track municipal water sources, and other values. expenditures, develop and disseminate The WERT develops burn severity maps, public communications, coordinate with the models potential post-fire debris flows, Marin EOC, and determine staffing needs. erosion rates, and changes in hydrology. In The district uses the County’s WebEOC the event of a wildfire on district watershed system to document events, activities, and lands the data and recommendations conditions and request additional recovery provided by WERT can be used to prioritize support. The tracking of events, resources district-led recovery actions, where deployed, and expenditures is essential as it warranted, and potentially indicate how is a pre-condition for recouping costs from district operations and water treatment post-disaster funding programs. The processes may be impacted. WebEOC system also supplements district Policies, Agreements, & Contracts staff sitting at the MarinEOC by providing a Contracting Code redundant communication link with the Under normal, non-emergency situations, Marin EOC. the district’s contracting code provides CalFIRE accommodations to facilitate an efficient

108 SECTION 6 FOCUS AREA: RECOVERY response to time-sensitive exigent events. assets and communication systems and Similar to other public agencies the district avoiding additional financial loss that may follows a contracting code that requires a occur during exigent circumstances. competitive bidding process for Existing Agreements & Contracts construction contracts larger than $35,000. At any time, the district has existing For projects less than $35,000, the district agreements and contracts with suppliers, general manager may execute a contract contractors, and professional service without a formal bidding process or providers that are based on unit costs or additional approvals from the board of hourly rates that can be used to respond to directors (district code Section 2.90.030). and recover from emergency situations. This could include contracting with a This could include requests for additional communications installer to replace fuel deliveries for backup generators during damaged SCADA or radio equipment or to a PSPS or wildfire event. It could also clear downed trees leading to district include requesting landscape services to facilities. clear vegetation around assets in an area Construction contracts that are considered that is in the potential path of an ongoing an emergency by the district general wildfire or professional services to assist in manager which exceed the $35,000 the replacement of communication system threshold can be executed without a formal components. Overall, the district has at its bid process after obtaining informal disposal, a range of existing agreements quotations (district code 2.90.055[b]). The and contract for materials and labor to general manager shall report the action to assist in recovery efforts. the board within seven days or at the next Capital Financing regularly scheduled meeting for board The district is in the process of shifting its consideration and approval in accordance capital financing structure which will with district code 2.90.055[a, b, c] and improve financial standing and resilience to Board Policy No. 40. An example of such an natural disasters (earthquake, fire, etc.) emergency may include repairing a Historically, the district relied on long-term $120,000 fire-damaged transmission line debt (bonds) to fund system improvements providing raw water connection to a such as tank and pipe replacements and treatment plant. Under these circumstances treatment plant upgrades. Using bonds to the continued operation of the system is finance capital infrastructure projects has a reliant upon on immediately executing a major drawback; the cost of servicing debt contract to make repairs. is a function of debt. If a municipality The district’s contracting code and Board already has some debt exposure any Policy No. 40 aids recovery efforts by additional bond issues associated with allowing for the immediate repair of district emergency repairs could lower the district’s

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bond rating and exacerbate the district’s financial standing by requiring the district to

offer bonds at a higher coupon rate.

In July of 2019, the district switched to a pay-as-you-go approach for funding capital improvements which relies on a capital maintenance fee to fund critical capital infrastructure projects. A capital financing

structure that shifts towards pay-as-you-go will make the district less reliant on debt, improve the district’s municipal bond

rating, and result in lower coupon rates in the event a bond issue is required to fund emergency repairs and upgrades.

District Reserves In addition to operating the capital program as a pay-as-you-go system, the district has

additional financial flexibility by maintaining reserve funds to adapt to unforeseen catastrophic events. Reserve funds could be

used to cover damages caused by the district (Insurance Reserve) and the cost to repair assets in the event of a wildfire (Capital and Unrestricted Reserves).

Summary of Existing Topic Areas & Hazards

A summary of existing recovery actions (by topic area) and targeted hazards is provided in Table 7-1.

110 SECTION 6 FOCUS AREA: RECOVERY

Table 7-1: Summary of Existing Recovery Actions (by Topic Area) and Targeted Hazards

Targeted Hazards

off

t

Visitor Safety Visitor

Damage to Assets Damage System to Communication Damage Hydrology Physical to Impacts Quality Water Source Vegetation to Facilities Access Contamination System Distribution Loss Pressure Safety Staff

eased Facilities eased

Electrical Service Connections Service Electrical

Fire Response & Suppression Response Fire Financial Security

Staffing Shu Power Safety Public Training & Preparation Staff

Outside Utilities Outside Management & Maintenance Watershed Visitors Watershed Contractors Outside

District Facilities District Maintenance System

-

1: 2: 3: 4: 5: 6: 7: 8: 9: 10:

------

1: 2: 3: 4: 5:

1: 2: 3: 4: L 5: 6: 7: 8:

- - - - -

------

Existing Recovery Action Topic Area IS IS IS IS IS IS IS IS DH DH DH DH DH DH DH DH DH DH IH IH IH IH IH Disaster Service Worker ● ● ● Operations & Maintenance Staff ● Enterprise Management System ● Marin County Emergency Operations Center ● ● ● District Emergency Operations Center ● ● ● ● CalFIRE ● ● Contracting Code ● ● ● ● Existing Agreements & Contracts ● ● ● ● Capital Financing ● ● ● District Reserves ● ● ●

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112 SECTION 6 FOCUS AREA: RECOVERY

7.2 Data Gaps & Additional Recovery Actions  Conduct a review of lead times for After a review of existing recovery operation critical facilities. For hard to categories and actions there are a number source materials and parts consider of potential data gaps that could be ordering spares. pursued and additional recovery actions Damage Assessment Program that could be employed to improve overall Pump stations, tanks, communication system resilience to catastrophic wildfire. systems, buildings, culverts, crossings and Plans, Programs, & Procedures watershed facilities could all be destroyed or partially damaged due to fire. In all SAP Hierarchy Implementation circumstances the district’s current The district tracks its assets using an emergency operations plan identifies there enterprise management (SAP) that includes will be need to assess damage, identify a functional location for each asset and necessary repairs, and prioritize recovery associated equipment. The district’s efforts and approaches accordingly. The operations staff also maintains an responsibility of damage assessments is “operations manual” that is available over given to the Planning unit of the district the district’s internal network which has key EOC. In order to streamline the damage information about each asset, the types of assessments and aid future recover efforts pumps and valves installed at each location, the district should consider the following: and information on how the element can be operated in the event of a power outage. In  Update the district’s emergency the event wildfire or other natural disaster operations plan to include damage affects an asset and replacement supplies, assessment forms specific to each materials, and parts need to be ordered, it type of water infrastructure asset would be useful to have a single location (pump station, tank, treatment plant, with all critical information available to communication component, hydrants, district EOC staff. To aid recovery efforts etc.) and watershed facilities (culverts, the district should consider: roads, recreational facilities, etc.). The CalOES Safety Assessment Program,  Harvesting available asset information which primarily targets the to update the SAP Hierarchy assessment of structures after Implementation Project or provide earthquakes, floods, and wind storms links in SAP that direct users to other may provide a good reference or relevant asset data. Updates could process to follow. include spare part numbers, links to maintenance plans, and a manifest of critical components for each asset.

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Water Quality Testing Contamination of water mains and service  Identify laboratories to supplement laterals with volatile organic compounds any district-led testing program (VOCs) may occur if a wildfire burns through a populated community in the Plan Area  Identify a general testing strategy or particularly if a loss of system pressure priority for testing distribution mains, occurs during the event. Establishing an tanks, and service laterals in fire initial assessment of water quality impacts affected areas. will be an essential first step in the recovery Business Continuity Plan process. Catastrophic events put additional financial The extent of testing will be determined by and managerial stressors on an organization the size of the wildfire and affected water even after an event is over. While an infrastructure. Municipalities recently emergency operation plan identifies how an affected by wildfire induced VOC organization will respond to an event in contamination such as benzene have had to real-time, a business continuity plan work with the state and adapt testing plans outlines how an organization will maintain based on event specific characteristics to operations after an event is over. determine the presence and extent of Therefore, the district should consider system contamination. Therefore, proposed developing a business continuity plan for testing locations and potential isolation of maintaining operations from a financial, portions of the water system to slow or managerial, and functional perspective limit system contamination will require after a natural disaster. situational awareness and a detailed understanding of the local distribution Training system. The following measures, when Staff Training combined with system knowledge and Many district staff will be involved, in some operational awareness during the manner, with the Marin EOC and district emergency event would support EOC during recovery operations. In order to identification and potential isolation of ensure staff understand their roles, contaminated areas of the distribution responsibilities, and capabilities in the EOC system. the district should review and assign  Identify the required testing required trainings to appropriate staff methodologies and standards. based on the needs and content of the updated emergency operations plan.  Determine the capacity of the

district’s water quality lab in performing analyses for VOCs.

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Policies, Agreements, & Contracts District Reserves

Contracting Code For any catastrophic event impacting the Plan Area, there is some potential that If the district seeks to be reimbursed by revenues from water sales and fees would FEMA programs, the contract language for drop considerably; thus leaving a gap all materials, services, and construction between revenues and the costs to operate must include specific federal contract and repair the system. During this time the provisions consistent with the Uniform Act. district would need to rely on reserves and The district should consider conducting a insurance pay‐outs to bridge the revenue review of the Uniform Act and its gap and make repairs. The district should contracting provisions, and develop an review existing reserve policies in light of emergency contracting approach that will expected replacement costs for critical facilitate future reimbursements. facilities. Procurement Summary of Potential Topic Areas & The procurement process, which includes Hazards selecting and purchasing materials and/or A summary of potential recovery actions (by contractors is a critical element of recovery topic area) and targeted hazards is provided planning. The Public Assistance, Hazard in Table 7‐2. Mitigation Assistance, and Pre‐Disaster Mitigation programs all require that district There is considerable overlap between procurement processes follow federal potential hazard reduction actions standard. Failure to follow the Uniform identified in the Focus Areas of Mitigation, Rules puts the district at risk of not Planning & Preparedness, Response, and receiving full reimbursement for associated Recovery. District staff have exercised disaster costs. discretion on how best to associate hazard reduction actions and each Focus Area, In order to ensure the district can be however, readers are encouraged to review reimbursed for potential disaster response the other sections of this report to better and recovery and pre‐disaster mitigation understand the full suite of potential hazard projects, the district should evaluate the reduction actions identified. Uniform Rules and include necessary procurement approaches in the updated See Section 8 for an initial list of Emergency Operations Plan. recommended actions.

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Table 7‐2: Summary of Potential Recovery Actions (by Topic Area) and Targeted Hazards

Targeted Hazards

off t

Visitor Safety Damage to Communication System Impacts to Physical Hydrology Vegetation Access to Facilities Distribution System Contamination Pressure Loss Staff Safety eased Facilities Electrical Service Connections Damage to Assets Source Water Quality Staffing Public Safety Power Shu Fire Response & Suppression Staff Preparation & Training Financial Security District Facilities System Maintenance Watershed Maintenance & Management Watershed Visitors Outside Contractors Outside Utilities IS‐3: IS‐4: L IS‐5: IS‐6: IS‐7: IS‐8: DH‐1: DH‐2: DH‐3: IS‐2: DH‐4: DH‐5: DH‐6: DH‐7: DH‐8: IS‐1:‐ DH‐9: DH‐10: IH‐1: IH‐2: IH‐3: IH‐4: Potential Recovery Topic Areas IH‐5: SAP Hierarchy Implementation ● ● ●

Damage Assessment Program ● ● ● ●

Water Quality Testing ●

Business Continuity Plan ● ● ●

Staff Training ● ● ● ●

Contracting Code ● ● ●

Procurement ● ● ● ●

District Reserves ● ● ●

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118 8 Recommended Actions

corresponding answers that could be used Introduction to differentiate and rank actions. Potential The Plan’s focus areas of Mitigation (Section hazard reduction actions were initially 4), Planning & Preparedness (Section 5), prioritized based on the time required to Response (Section 6), and Recovery (Section implement, the degree to which an action 7) identified data gaps and developed reduces the probability of a wildfire, the potential hazard reduction actions to consequence or impact to district improve community and water system operations if an action is not pursued, and resilience to wildfire. Through this process, anticipated cost (Table 8-1). staff was focused on actions that could Table 8-1: Hazard Reduction Action Ranking Criteria target specific hazards identified in Section

3 (Threat Identification) with the Question Answer understanding that each action differs in Short (0-2 years) Time required to terms of its effectiveness, feasibility, Medium (2-5 years) implement action timeline for implementation, and other Long (>5 years) factors. The goal of this section is to provide None How much the action an initial prioritization and set of Low reduces probability of Medium recommended actions based on a ranking wildfire system developed by staff. As this Plan is High Low finalized, staff will incorporate the input, Consequence of Medium expertise, and experience of the board, inaction (impact to High community, and partnering agencies to district operations) refine the prioritization of recommended Critical actions. <$10,000 $10,000-$50,000 8.1 Prioritization Process $50,000-$100,000 Cost of action $100,000-$500,000 Staff compiled all hazard reduction actions $500,000- and developed a set of questions and $1,000,000 >$1,000,000

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SECTION 8 RECOMMENDED ACTIONS

Staff recognized that while cost is a 8.2 Recommendations component to consider, incorporating cost The full list of initial recommendations for could inadvertently skew rankings towards hazard reduction actions is provided in actions that are less expensive at the Table 8-2. The final calculated scores were expense of actions that are more integral to binned into four groups representing the the district’s core mission. As such, cost was approximate quartiles. For example, actions removed from the prioritization process grouped as “Highest” priority signify those and is not reflected in the recommended that fall within the upper 25% of the scores. actions presented below. Similarly, those that fall within the lowest 25% of scores are denoted as “Lowest” priority.

Table 8-2: Prioritized Recommended Actions

Priority Action Group

Updating the Emergency Operations Plan to include a section on Wildfire Response Highest which may include personnel assignments, priority actions, watershed activities, evacuation procedures, etc.

Complete design and construction of permanent generator at San Geronimo Water Highest Treatment Plant

Develop a prioritized list of facilities to protect based on consequence of failure and Highest impact to broader community

Permanently remove remote and infrequently used barbeques in at Laurell Dell, Barth’s Highest Retreat, Rifle Camp, and Potrero Camp

The district should review the condition of existing fire apparatuses and identify Highest necessary investments to ensure staff have the necessary equipment to safely carry out the initial attack of wildfire on the watershed

The district should review existing reserve policies in light of expected replacement Highest costs for critical facilities

Review the current emergency operations center from the context of the updated Highest Emergency Operations Plan to ensure it can meet functional requirements with a specific focus on technology, space, and structural improvements

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SECTION 8 RECOMMENDED ACTIONS

Priority Action Group

Review and assign required trainings to appropriate staff based on the needs and Highest content of the updated emergency operations plan

Highest Prioritize county defensible space inspections around critical district assets

Highest Develop asset specific action plans

Develop a Wildfire Response Plan as an element in the district’s Emergency Operations Highest Plan to guide watershed response activities

Highest Consider banning all use of barbeques during fire season

Consider purchasing and storing a limited supply of required PPE equipment for key Highest staff including Nomex clothing, emergency shelters, eyewear, respirators, etc.

Based on anticipated roles and responsibilities, identify the required personal Highest protection equipment (PPE) necessary for key staff to respond to a wildfire event

Assess, evaluate, and develop required structure hardening actions and approach for Highest defensible space at each treatment plant. Consider implementing minimum structure hardening actions

The updated Emergency Operations Plan should identify the role of the district’s Highest emergency operations center as the central organizing and command center for specific issues on the watershed and throughout the service area

Implement the lessons learned from the 2019 PSPS event including, but not limited to Highest those identified as critical

Ensure district staff is completing designed and routine trainings on the updated Highest Emergency Operations Plan

Complete a site-by-site analysis to document and establish required defensible space Highest specifications at each district asset and develop a tracking and reporting process and program to document vegetation management activities performed

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Priority Action Group

Integrate the condition assessment data and fire risk factors with the district’s asset Highest management framework

Highest Install permanent backup generators at key pump stations

District staff should perform work inspections to confirm the fire protection plan is in Highest place

Develop facility assessment prioritization checklist to aid in the response and recovery Highest processes

Highest Consider closing watershed during Red Flag Warnings

Complete bi-annual EOC Table-top drills and exercises related to wildfire, preferably in Highest the spring of each year

Moderately The district should develop a Fire Protection Plan to be followed by all outside High contractors and permit holders

Moderately Supplement district code 9.07.01 with a description of which materials are allowed to High be burned on watershed lands and in district-provided facilities

Moderately Based on an updated Emergency Operations Plan, review and align staff training High requirements with anticipated responsibilities

Moderately Develop a geodatabase of natural resources and critical infrastructure to protect and High wildfire suppression infrastructure on the watershed

Moderately The district should develop formal procedures regarding the level of tanks during fire High season, dry periods, red flag, and impending PSPS events

Moderately The district should complete a transmission and distribution Master Plan study to High better define day-to-day system capabilities, limitations, and operational vulnerabilities

Moderately Supplement district code 9.07.01 to require that all fires be fully extinguished after use High

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SECTION 8 RECOMMENDED ACTIONS

Priority Action Group

Moderately Review existing processes, procedures, and responsibilities for approving variances to High established defensible space specifications

Review approach and develop procedures for capital and maintenance projects that Moderately remove tanks from service or shut down water service during defined fire season, dry High periods, red flag events, and impending PSPS events

Pre-position fire extinguishers or water pails at picnic areas where barbeques are Moderately present. This may include installation of fire hose and housing within reach of High barbeques

Consider and prioritize projects that reduce ignition potential (undergrounding, Moderately decommissioning, breaker/wire replacement, etc.) of district electrical connections and High facilities

Develop a ranking or prioritization matrix of pump stations to receive structure Moderately hardening based on fire risk (fire behavior modeling and structure type) and High consequence of failure

Moderately Develop a new pump station standard that includes transfer switches and backup High power sources

Moderately Consider conducting a review of the Uniform Act and its contracting provisions, and High develop an emergency contracting approach that will facilitate future reimbursements

Consider and evaluate required structure hardening actions for each asset in the Moderately prioritization matrix based on professional technical expertise. Implement minimum High structure hardening actions based on asset priority

Moderately Complete Minimum FEMA-recommended training for all EOC staff High

Moderately Aggregate existing hot work procedures and integrate them with jobsite safety plans High

Moderately Work with County to close Bolinas Fairfax during Red Flag conditions High

Moderately Identify required testing methodologies and standards High

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Priority Action Group

Moderately Update maintenance plans to include factors of structure vulnerability High

Moderately Increase facility inspection frequency High

Conduct a thorough review of possible effects of post-fire sediment input and debris Moderately into the district’s water supply reservoirs and develop a set of mitigations and response High actions

Moderately Complete ongoing condition assessments High

Identify an authorized official and alternate for all coordination and administration with Moderate CalWARN

Moderate Conduct annual hot work training and refresher in advance of fire season

Moderate Complete efforts to develop a LHMP

When possible, update leases to include vegetation management of entire premises – Moderate not just area where the structure is located

The district should incorporate, with already scheduled maintenance plans and Moderate processes, a checklist to identify any components not in conformance with current electrical code or which may be an ignition hazard

Identify a general strategy for testing main, tanks, and severe laterals in fire-affected Moderate areas

Formalize annual vegetation management/defensible space reviews with lessees and Moderate PG&E in the spring of each year to review vegetation management actions for the coming summer

Review and make improvements to the district’s standard specifications to bolster and Moderate require adherence to wildfire best management practices

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SECTION 8 RECOMMENDED ACTIONS

Priority Action Group

Modify district code 9.07.01 to allow rangers to cite violations as infractions rather than Moderate misdemeanors which would make prosecutions more expeditious

Install permanent backup generator to power the administration building, corporation Moderate yard, and water quality lab

Include consideration of fire risk and structure hardening actions when selecting future Moderate pump station and tank sites

Ensure the authorized official and alternate review the CalWARN operations plan, Moderate attend meetings and trainings, and understand how to activate CalWARN

Coordinate with Ross Valley Fire district and MCFD to identify potential restrictions to propane fuel deliveries through fire areas. If coordination indicates fuel deliveries could Moderate be delayed by three days or more, replace Sky Oaks backup generator with a comparable diesel unit with greater capacity

Require all permit holders to notify the district of anticipated work start date/time no Moderate later than 24 hours before work commences

Request assessment of contents and potential for ignition on all leased properties Moderate (propane tanks, fuel tanks, etc.)

Moderate Identify laboratories to supplement any district-led testing program

For all vegetation management activities by PG&E’s contractors, require district review Moderate and approval no less than one week before maintenance is scheduled

Develop a contact list of local and regional CalWARN contacts that should be Moderate incorporated into the district’s updated emergency operations plan for quick reference

Moderate Develop a business continuity plan

Send appropriate staff to IS-1001: "The Public Assistance Delivery Model Orientation" Moderate training

Moderate Replace the remaining redwood tanks with bolted steel tanks

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SECTION 8 RECOMMENDED ACTIONS

Priority Action Group

Moderate Ensure the district is meeting the minimum member utility responsibilities

When possible update leases to require an electrical system inspection and repairs to Moderate comply with current code and minimize the potential for electrical fires

Utilize results from the transmission and distribution Master Plan study to guide Moderate investments in potential resilience projects to improve overall system performance in certain circumstances

Moderate Update or construct a new EOC that meets operational requirements

The district should prepare a comprehensive review of all power sources and electrical Moderate system components at district facilities

The district should evaluate the Uniform Rules and include necessary procurement Moderate approaches in the updated Emergency Operations Plan

Review available resources from nearby partner agencies in relation to district Moderate capabilities and potential needs

Review available culvert data and identify non-fire resistant crossings on critical access Moderate routes

Evaluate the anticipated performance of the existing fuel reduction zones and other Moderate configurations that may optimize implementation and effectiveness of the BFFIP

Develop a database of water mains supported by bridge structures and categorize Moderate based on combustibility of structure

Continue to request PG&E inspection and maintenance records and track in the Moderate district’s enterprise management system

Continue to coordinate with MCFD and integrate updated fuels and wildfire modeling Moderate results with district planning studies.

Invest in equipment and infrastructure to support emergency water distribution Moderate systems

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SECTION 8 RECOMMENDED ACTIONS

Priority Action Group

Moderate Install additional shielding around Sky Oaks backup generator tank and appurtenances.

Moderate Install additional fire condition or fire hazard signage at all gateways

Culverts that currently meet operational requirements but are vulnerable to fire should Moderate be prioritized for replacement

Develop projects or agreements with adjoining water districts to increase operational Lowest capabilities and water source redundancy

Install additional signage notifying visitors of legal use of barbeques (briquettes only, Lowest no collecting wood/vegetation)

Lowest On district owned structures replace wood materials with non-combustible elements

Identify and formalize all acceptable parking locations by installing additional signage Lowest (parking and no-parking signs) and natural barriers

Formalize a single point-of-contact and process of communication to facilitate Lowest collaboration with adjacent landowners

Update district's emergency response plan to include asset specific damage assessment Lowest forms

Lowest Install additional hydrants near critical bridge facilities to facilitate structure protection

Lowest Develop an integrated hydrologic model of the district's watersheds

Remove redwood tanks from the system where subsequent analysis (Master Plan) Lowest indicates they are not required

Develop a GIS database of approved parking spaces to assist with maintenance tracking Lowest and response

Conduct a review of lead times for operation critical facilities. For hard to source Lowest materials and parts consider ordering spares

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SECTION 8 RECOMMENDED ACTIONS

Priority Action Group

Lowest Update the SAP Hierarchy

Lowest Remove and dismantle existing redwood tanks that are permanently out of service

Lowest Increase enforcement activities for parking in non-sanctioned areas

Lowest Determine capacity of district's water quality lab in performing VOC analyses

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8.3 Conclusion The purpose of the Plan is to approach wildfire planning efforts in a programmatic way that informs the district’s core business and embraces the responsibility we have to protect the community we serve. The Plan provides an initial summary of existing district programs and operations related to wildfire preparedness, identifies immediate data gaps, and develops an initial set of recommended actions that if implemented, will lead to a more fire resilient and reliable water transmission and distribution system that protect communities adjacent to district lands and communities throughout the service area. Staff anticipates this document to be a living document and reviewed as recommended actions are implemented and additional measures are identified that would improve system resilience to wildfire.

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