January 2016

Austin, : Managing For Growth, Healthy Landscapes, And Wildfire Risk Reduction

Leaders in Wildfire Adaptation OVERVIEW

Wildfires across the American West Introduction are increasing in frequency, size, and severity. The impacts from climate , Texas, the state capital, is the the fastest growing big city in change and increasing growth within the country. Between 2013 and 2014, Austin added more than 25,000 the region’s Wildland-Urban Interface new residents, bringing the 2014 total population to 912,791 people.1 (WUI), further exacerbate the risks from Coupled with high growth, the city ranks third highest among 13 wildfires. western urban areas for homes at risk for wildfire damage,2 with more than 25 percent of its houses threatened by wildfires. Urban areas in the West are increasingly responding to the challenges of wildfire The City of Austin and surrounding Travis County are also home risk management through unique land to a geographically unique region of Texas known as the Balcones use planning tools which affect the pace, Escarpment, which separates the Edwards Plateau from the Blackland pattern, and scale of development. Prairie. As a result, the region contains diverse ecological landscapes, Austin, Texas is one of five communities which in turn brings particular considerations regarding how wildfire profiled by Headwaters Economics mitigation efforts are managed alongside other sustainability objectives, in a report identifying some of these such as habitat management and endangered species preservation. innovative land use planning strategies, including: • Close interdepartmental collaboration between the and other city staff to conduct prescribed burns within the city limits, reducing fuel loading. • A joint review process between the city and the county, allowing both jurisdictions to review all proposed development and ensuring the city inherits a better planned WUI, including adequate access, water supplies, defensible space, and other mitigation features. • Implementation of “CodeNEXT,” an initiative to promote compact development by directing new The Balcones Escarpment is a geologic fault zone several miles wide and appears growth to existing areas rather than from the plains as a range of wooded hills, separating the Edwards Plateau from the undeveloped “greenfield” sites. Coastal Plains. Photo Credit: Sylvia Jennette

headwaterseconomics.org | January 2016 | 1 In 2011, the Bastrop County Complex further As Austin grows, it must strike the right balance destroyed Houston toad habitat when it burned between development and wildfire safety, while also through . Together with prolonged considering factors such as environmental protection drought conditions, habitat loss remains the most and natural resource conservation. A combination of local stakeholders’ creativity and commitment is steadily achieving that nuanced dynamic. Current and recent efforts with planning and regulatory updates are also providing opportunities for city officials to make a long-term difference in future land use outcomes.

History of Wildfire in Austin Both Austin and Travis County have an active history of wildfire. Recorded wildfire incidents in Travis County date back to 1959, with more recent records documenting 7,885 wildfires in the county from 1998 to 2012. The most notable fire season was in 2011, when six large fires occurred during Labor Day weekend. In all, approximately 57 homes were destroyed in three of the fires and an estimated 7,000 acres were burned.3 The same day these fires took place, the devastating Bastrop County Complex Fire started in neighboring Bastrop County, which burned more than 35,000 acres.4

Impacts of Wildfire on the City of Austin The 2011 wildfire season, often referred to as the “Texas Firestorm,” elevated public awareness about the potential impacts of wildfire. During that year, Austin residents witnessed areas within their city and surrounding lands burn, making wildfires a real and palatable threat. Specific impacts included: • Loss of life and property. The Bastrop County Complex Fire (2011) was responsible for the deaths of two people and destroyed more than 1,700 structures. Total insured losses caused by the Bastrop Complex Fire were estimated at $325 million.5 • Disruption of services. The Bastrop County Complex Fire shut down electricity and water utilities for up to two weeks in some locations. The Labor Day weekend fires in Travis and Bastrop Counties forced the evacuation of thousands of residents, and some schools had to temporarily suspend classes. • Critical habitat loss. A couple of years earlier, in 2009, the Wilderness Ridge Fire burned in Bastrop County and destroyed 1,491 acres of habitat for the endangered Houston toad.6 The Houston toad was the first amphibian ever listed on the endangered species list in 1970, and lives solely within Texas.

headwaterseconomics.org | January 2016 | 2 significant threat to the Houston toad. • Air quality effects. The Bastrop County Complex and Labor Day weekend fires in Travis County brought a thick cloud of smoke to the region. Doctors warned children with asthma and adults with chronic respiratory problems to take health precautions.7

How Austin Is Addressing Wildfire Risk Through Land Use Planning and Regulations Following the 2011 fire season, Wildfires in densely-populated WUI areas like Austin do not have to be large in size to have the City of Austin significantly big consequences. As part of the “2011 Texas Firestorm,” for instance, the Pinnacle Fire in Oak Hill burned only 100 acres, but destroyed 10 homes, and threatened dozens more expanded its approach to wildfire homes and businesses. Photo credit: Justice Jones, management. As part of this, Austin and Travis County officials formed conditions, values, and priorities and wildfire risk reduction projects the Austin Travis County Wildfire related to wildfire risk reduction supporting home retrofits which Coalition (ATCWC) to increase and community resilience. CWPPs are more fire resistant—will have the region’s wildfire preparedness can vary in scope, scale, and a higher likelihood of receiving and help communities in the region detail, but there are minimum administrative support and become fire adapted. The coalition’s requirements for their development resources at the city and county first major undertaking was to lead 8 and adoption. level. the development of a comprehensive joint city-county Community The Austin-Travis County CWPP is Wildfire Protection Plan (CWPP), an impressive 900-page document Working with Travis County on which was ultimately adopted by that contains detailed fire history, Subdivision Reviews to Decrease the and Travis local vegetation information, an Future WUI Risk County Commissioners Court in analysis of community wildfire risk, In Texas, two types of governments November 2014. In addition, the and an exhaustive set of proposed have land use authority: counties Austin Fire Department’s Wildfire mitigation measures. The plan makes and municipalities. Texas Division is working with other a point to emphasize that all citizens, counties have fewer controls over city departments to address the regardless of where they live, have development, typically limited to growing Wildland-Urban Interface a role in supporting wildfire risk the ability to regulate subdivisions, (WUI) through interdepartmental reduction. on-site sewage systems, floodplain collaboration and implementing development, and water supply. The CWPP will soon be included development and regulatory Counties do not have the authority as an appendix to the city’s Hazard mechanisms to actively integrate to enact building codes, a zoning Mitigation Plan, which was wildfire planning, as discussed ordinance, or impact fees. (Travis undergoing a review as of this below. County does have the power to writing. Integrating the CWPP into require stormwater management, the Hazard Mitigation Plan will Elevating the Austin-Travis impose fire codes, and develop ensure implementation guidelines County Community Wildfire standards for water wells to prevent and recommended actions groundwater contamination). Protection Plan (CWPP) contained within the CWPP—such Alternatively, municipalities are as the future development and CWPPs are local plans designed allowed to regulate development adoption of wildfire regulations to address a community’s unique comprehensively within their city headwaterseconomics.org | January 2016 | 3 conservation purposes also limits the number of future structures at risk within high hazard areas. In addition, the city is undergoing an initiative called CodeNEXT that will revise its current Land Development Code (the code regulating development within the city’s planning and zoning jurisdiction). Through the CodeNEXT process and previous planning policies promoted in Imagine Austin (the city’s comprehensive plan), the city is emphasizing bringing nature back into the city and promoting compact development by directing new development to existing areas rather than on “greenfield” sites (raw land that has never been developed). Encouraging redevelopment of existing areas and infill development carries secondary benefits by managing growth and reducing the presence of structures The Austin-Travis County CWPP contains detailed risk assessments of neighborhoods, such as this spot risk map. Source: Austin-Travis County CWPP within an expanding WUI. boundaries, and they can also To ensure the city inherits a “better Coordinating Wildfire Activities regulate some development in planned WUI,” including adequate with Environmental Objectives extraterritorial jurisdictions (ETJ)9 access, water supply, and other to ensure that the development wildfire risk-reduction features, the “One of our biggest challenges is meets minimum standards, aligns City of Austin has an agreement that existing codes do not orient with infrastructure investments, with Travis County to give both the themselves to wildfire,” says and minimizes impacts on natural city and county shared authority Justice Jones, Wildfire Division resources.10 in the design review process. In Program Manager for the Austin doing so, Austin is able to guide Fire Department. Jones and others Many Texas counties that surround future development in a way that within the fire department view large urban centers are expanding, minimizes exposure to wildfire existing city regulations that call for and a large percentage of growth is threats. the retention of native vegetation occurring with limited restrictions on growth’s location, quality, and development impacts—ultimately Austin has designated nearly 30 percent of city land contributing to larger WUIs as conservation areas, limiting the number of new throughout an already drought- stricken and fire-prone state. This structures within the WUI. scenario is increasingly reflected in Austin as the surrounding Leveraging Conservation to occasionally be at odds with population in Travis County grows. and Compact Development wildfire risk reduction objectives. However, Austin has a vested Opportunities Yet, rather than choosing wildfire interest in the county’s current risk reduction treatments over growth and development patterns Austin has designated nearly 30 environmental regulations, or because the city may annex some percent of city land as conservation vice versa, the fire department of this development in the future. lands. Protecting this space for is working to modify internal

headwaterseconomics.org | January 2016 | 4 landscape they are tasked with damage incurring from climate protecting. Ultimately Jones believes change and its side effects, such as these and other efforts will build increased drought, wildfire risk, credibility and trust with other city watershed degradation, and habitat departments and set a precedent for loss. future work in ecologically sensitive areas. Key Takeaways Partnerships pay dividends now Austin Prepares for Wildfire and in the future. Although the Risks and the Impacts of Austin Fire Department may be Climate Change seen as the primary champion Texas has been experiencing for wildfire risk reduction efforts, shorter, wetter winters, and hotter, partnerships are a hallmark of The Austin Fire Department emphasizes drier summers.11 Climate change, the community’s successes. The wildfire education and outreach through a including prolonged periods of city’s commitment to coordinate variety of public programs. Photo credit: with Travis County, preemptively Justice Jones, Austin Fire Department. drought and altered precipitation patterns, is influencing the addressing issues related to an operational guidelines to ensure composition and distribution of expanding WUI, demonstrates vegetation management practices local vegetation, which is predicted foresight and creativity. The fire seeking to reduce wildfire risk are to have an effect on where and department also recognizes where compatible with environmental how wildfires will burn across other city departments may enable regulations intended to protect central Texas. Landscapes that better success with the delivery of endangered species and critical have traditionally not experienced WUI-related messages. For example, habitat. For example, the fire wildfire events in the past are more the fire department is looking to the department recently paid for likely to burn due to the availability Office of Sustainability as a potential ecological assessments at five of fuels, such as grasses and brushes. department for housing future sites in the city prior to starting Correspondingly, fire behavior will “umbrella” programs addressing the any fire mitigation work. The fire reflect altered vegetation patterns environment, WUI, and climate- department is also initiating a new and when combined with increased associated activities. land management template for drought periods, may become more use on city owned property such frequent and severe, as witnessed Tackling a mitigation strategy as parks and nature preserves. during the 2011 Texas Firestorm.12 in small bites can be effective. This tool will be used to evaluate Rather than adopting wildfire properties at risk for wildfire by To address climate-related concerns, regulations in full, the Austin Fire tracking factors such as access the Austin City Council passed a Department is tackling different points, fuel mitigation breaks, resolution on November 21, 2013 topics such as structural hardening and the number of treatment directing the Office of Sustainability (e.g., requirement of ember resistant acres needed to address existing to work with nine departments to vents and fire-resistant decking hazardous vegetation. determine how planning efforts materials) and the implementation integrate anticipated climate change of vegetation management practices In addition, the fire department impacts and to identify a process on high-risk properties throughout is working with other city staff to for performing local and regional the city. The Department believes conduct prescribed burns within the vulnerability assessments. On June that by proactively familiarizing city. While the primary objective is 4, 2015, the City Council passed residents and land managers with to reduce hazardous vegetation, this a resolution to adopt the Austin these types of wildfire mitigation practice also helps restore native Community Climate Plan. This plan approaches, the foundational vegetation and reduces the future provides guidance for the city to groundwork will be laid for a more likelihood of large catastrophic achieve net-zero communitywide successful outcome when future wildfires. It also provides firefighters greenhouse gas emissions by 2050. wildfire regulations are proposed for with a keen understanding of These efforts are intended to abate adoption. local geographies and the fire or halt the local environmental

headwaterseconomics.org | January 2016| 5 Austin Codes & Regu- https://austintexas.gov/de- KEY CONTACTS lations (includes Land partment/development-ser- Development Code) vices/codes-and-regulations. Justice Jones City of Austin Master https://austintexas.gov/page/ Wildfire Division Program Manager Plans (Comprehensive city-austin-master-plans Austin Fire Department Plan, Climate Plan, 4201 Ed Bluestein Blvd and the Sustainability Austin, TX 78721 Action Agenda) 512-974-0199 [email protected] CodeNEXT http://www.austintexas.gov/ codenext Marc Coudert Environmental Program Coordinator Other Resources Office of Sustainability Austin Urban Forest https://austintexas.gov/page/ City of Austin Plan urban-forest-plan P.O. Box 1088 Central Texas Extreme http://austintexas.gov/sites/ Austin, TX 78767 Weather and Climate default/files/files/Sustain- 512-974-2016 Change Vulnerability ability/Climate/CAMPO_ [email protected] Assessment of Re- Extreme_Weather_Vulnera- gional Transportation bility_Assessment_FINAL. Steve Hopkins Infrastructure pdf Development Services Department (Subdivision Review) Texas Forest Service http://www.texaswildfire- City of Austin Assessment risk.com/ 505 Road Wildfire Ready Austin https://www.austintexas. Austin, TX 78704 – Before and After the gov/sites/default/files/ 512-978-4000 Fire (Environmental files/Watershed/wildfire/ [email protected] Best Management Firewise-before-and-after- Practices for Wildfire the-fire.pdf. Risk Reduction and Key Resources Recovery) Websites Fire Department http://www.austintexas.gov/ department/fire References Development Services https://austintexas.gov/de- 1. Census Bureau: http://www.census. Department partment/development-ser- gov/newsroom/press-releases/2015/cb15-89.html. vices 2. A 2015 Wildfire Hazard Risk Report by CoreLogic Office of Sustainability https://www.austintexas. lists Austin/Round Rock Texas as having 35,807 homes gov/department/sustainabil- with the highest risk score for wildfire damage and ity home reconstruction values over nine billion dollars. Available online: http://www.corelogic.com/research/ Documents wildfire-risk-report/2015-wildfire-hazard-risk-report. pdf. Austin/Travis County http://www.austintexas.gov/ Community Wildfire wildfireprotectionplan 3. Austin/Travis County Community Wildfire Protection Plan Protection Plan. 2014. Available online: https://www. austintexas.gov/wildfireprotectionplan. City of Austin Hazard https://www.austintexas. Mitigation Plan Update gov/sites/default/files/files/ 4. Texas Wildland Fire Annex: State of Texas hsem/HMAP-Update-for- Emergency Management Plan. 2014. Available online: website.pdf http://www.bastropcbc.com/the-2011-bastrop-county- complex-fire.

headwaterseconomics.org | January 2016 | 6 5. Insurance Council of Texas, Bastrop Wildfire Losses Rise. 2011. Available online: http://www. insurancecouncil.org/news/2011/Dec082011.pdf. 6. Texas Forest Service, Wilderness Ridge Fire Case Study. 2009. Available online: http:// txforestservice.tamu.edu/uploadedFiles/ FRP/2WildernessRidgeCaseStudy.pdf. 7. Available online:http://www.foxnews.com/ us/2011/09/08/smoke-from-texas-fires-have-doctors- concerned-for-at-risk-citizens/. 8. As described in Title I of the Healthy Forest Restoration Act (HFRA) of 2003 that authorizes communities to draft and implement a CWPP. 9. Extraterritorial jurisdiction is the legal ability of a government to exercise authority beyond its normal boundaries. 10. Imagine Austin, Comprehensive Report. Available online: http://www.austintexas.gov/sites/default/files/ files/Planning/ImagineAustin/webiacpreduced.pdf. 11. Cambridge Systematics, Inc. Central Texas Extreme Weather and Climate Change Vulnerability Assessment of Regional Transportation Infrastructure. January 2015. Available online: http://austintexas.gov/sites/ default/files/files/Sustainability/Climate/CAMPO_ Extreme_Weather_Vulnerability_Assessment_FINAL. pdf. 12. Texas A&M Forest Service. 2011 Texas Wildfires. Available online: http://texasforestservice.tamu.edu/ uploadedFiles/TFSMain/Preparing_for_Wildfires/ Prepare_Your_Home_for_Wildfires/Contact_ Us/2011%20Texas%20Wildfires.pdf.

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