Study on Wild Fire Fighting Resources Sharing Models Final Report October 2010
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Study on wild fire fighting resources sharing models Final report October 2010 A report to DG ECHO, European Commission From the European Policy Evaluation Consortium Study on wild fire fighting resources sharing models – Final Report EPEC European Policy Evaluation Consortium (EPEC) Brussels contact address: 146, rue Royale – B-1000 Brussels Tel: +32 2 275 0100 Fax: +32 2 275 0109 E-mail: [email protected] URL: www.epec.info Contact name and address for this study: Andrew Jarvis, Principal E-mail: [email protected] Tel: +4420 7611 1100; Fax: +4420 3368 6900 GHK Consulting, Clerkenwell House, 67 Clerkenwell Road London EC1R 5BL. United Kingdom Study on wild fire fighting resources sharing models – Final Report EPEC Study on wild fire fighting resources sharing models Final report A report submitted by GHK Consulting on behalf of the European Policy Evaluation Consortium 19 October 2010 Study on wild fire fighting resources sharing models – Final Report EPEC Document control Document Title Study on wild fire fighting resources sharing models : draft final report Job No. 30257478 Prepared by Gabriel Pierard, Andrew Jarvis Checked by ARJ Date 19/10/2010 Study on wild fire fighting resources sharing models – Final Report EPEC Contents 1 Introduction ........................................................................................................ 1 1.1 This report ................................................................................................................................ 1 1.2 Purpose of the assignment ...................................................................................................... 1 1.3 Content and structure ............................................................................................................... 1 2 The context to this study ................................................................................... 3 2.1 Introduction .............................................................................................................................. 3 2.2 The European Union Civil Protection Mechanism ................................................................... 4 2.3 The strengths and weaknesses of current EU arrangements.................................................. 6 3 International models and mechanisms – case study overviews and key lessons ............................................................................................................... 15 3.1 Purpose of this chapter .......................................................................................................... 15 3.2 Diagnostic overview ............................................................................................................... 15 3.3 Case study summary: USA .................................................................................................... 35 3.4 Case study summary: Canada ............................................................................................... 39 3.5 Case study summary: South Africa ........................................................................................ 42 3.6 Case study summary: Australia ............................................................................................. 46 3.7 Case study summary: New Zealand ...................................................................................... 48 4 Options for strengthening Europe‟s ability to respond to wildfires ............... 54 4.1 Purpose of this chapter .......................................................................................................... 54 4.2 Standards of Operation ......................................................................................................... 54 4.3 Training and certification ........................................................................................................ 56 4.4 Monitoring, coordination and despatch .................................................................................. 63 4.5 Governance ............................................................................................................................ 65 4.6 Financial sustainability and cost recovery.............................................................................. 74 4.7 Assets..................................................................................................................................... 84 4.8 Support and oversight of actions ........................................................................................... 92 5 Concluding remarks ........................................................................................ 95 Annex 1: International lease costs for Canadair water bombers ........................ 96 Annex 2: Aerial firefighting assets of selected Participating States .................... 97 Annex 3: Data on international fleets and markets ........................................... 100 Annex 4: Lease options ....................................................................................... 107 Study on wild fire fighting resources sharing models – Final Report EPEC 1 Introduction 1.1 This report This is the final report of a study on wild fire resourcing sharing models carried out by the EPEC consortium on behalf of DG ECHO (Humanitarian Aid and Civil Protection)1. The project team was provided by GHK Consulting2, working with the ad-hoc support of two external experts, Mr Mark Jones, Chairman of the CTIF (International association of fire and rescue service) Forest Fires Commission, and the Professor Johann Goldammer, Head of the Global Fire Monitoring Centre (GFMC), at Freiburg University, Germany), as well as experts from EU Member States . 1.2 Purpose of the assignment The objectives of the study were: ▪ To analyse the systems for sharing assets for wildfires and forest fires that have been put in place in 5 different non-EU countries. The system descriptions should include at least: – General organisation and arrangements for the sharing of aerial fire fighting resources and for collective governance of such resources at international / bilateral and national / regional levels; – An inventory and description of all key players at different levels (authorities, bodies, entities) in the five case studies, involved in the preparedness and response to forest fires; – Procedures regarding the decision-making in case of conflicting needs, the activation and Standards of Operations of the assets – Ownership of the assets – Financial arrangements, including insurance-related issues; – Training, lessons learnt and exercises; and – The process of development of these systems and lessons learnt in the process; ▪ To compare those systems among each other, in order to look for good practices and lessons to be avoided, by looking in particular at the degree of integration in terms of ownership, sharing and/or controlling of aerial fire fighting resources. ▪ To propose options that could improve the European arrangements. ▪ To make an assessment of the advantages and disadvantages of the proposed options, if applied at EU level, including economical efficiency (taking into account both financial and economic costs and benefits of these options). 1.3 Content and structure This report is structured as follows: ▪ Chapter 2 sets out an overview of the current EU situation regarding the sharing of aerial firefighting assets and provides an outline „problem definition‟ by profiling the 1 Contract Ref: No 07405/2009/55218/FRA/A3 implementing Framework Contract No BUDG 06/PO/01/Lot 001/ABAC-101931 lot 1 2 Details of GHK are provided at www.ghkint.com 1 Study on wild fire fighting resources sharing models – Final Report EPEC current system‟s vulnerabilities and risks. It describes the core components of the EU system and considers the strengths and weaknesses of present arrangements; ▪ Chapter 3 describes the arrangements in place in five countries around the world for the sharing of such assets within their own borders and with other countries. It provides a summary of the key lessons drawn from the study of these five systems; an overview table of the key features of these systems as well as outline descriptions of the systems for sharing these assets and a graphical representation of each country's governance model; ▪ Chapter 4 draws on the two preceding chapters to identify options that could help to address the challenges that the EU faces, based on lessons of experience in the five case study countries. In accordance with the terms of reference of this scoping project, our focus here has been to generate ideas that take inspiration from the overseas case studies. The issues raised by the options are discussed and costs identified where possible. ▪ Chapter 5 provides concluding remarks. The appendices to this main report, respectively present: ▪ details of international lease costs for Canadair water bombers (Annex 1); ▪ information on the aerial firefighting assets of selected states participating in the EU Civil Protection Mechanism (Annex 2); ▪ data on international fleets and markets for aircraft used in firefighting (Annex 3); ▪ details of potential aircraft lease arrangements (Annex 4); The full case studies – on USA, Canada, South Africa, Australia and New Zealand - are separately bound in a second volume. The case studies analyse the situation of each country in terms of: – Wildfire trends and policy responses (Part 1); – Key actors, governance; and operations (Part 2); – Asset ownership, contracting and procurement