FO:LACFC/2000/8  |
| FO:LACFC/2000/8 |
LATIN AMERICAN AND CARIBBEAN FORESTRY COMMISSION |
Item 7(a) of the Provisional Agenda |
TWENTY-FIRST SESSION |
Santa Fe de Bogota, Colombia, 4-8 September 2000 |
PREVENTION AND CONTROL OF FOREST FIRES |
Secretariat Note |
1. The occurrence of extensive forest fires in different parts of the world, which were more severe as a result of the intense drought conditions of 1997-1998, has deepened the concern of policy makers, the general public, international organizations and the mass media alike. Forest fires significantly affect people, property, natural resources, and consequently the human environment. The devastation caused by forest fires was demonstrated with dramatic effect during 1998 when wild fires killed seventy people in Mexico, caused severe health problems through air pollution arising from the destruction of tropical rain forests in Brazil and Central America. The need to discuss the problem and to agree on action led to the organization of a Regional Forum on Prevention and Fighting of Forest Fires and Reforestation of Affected Areas, held in Mexico (26 to 28 August 1998); and an FAO Meeting on Public Policies Affecting Forest Fires, held in Rome, Italy (28 to 30 October 1998).
2. The extent and effects of forest fires are related not only to climatic, environmental and fuel conditions, but also to national policies, laws and institutional objectives that concerned with such issues as human settlement, land tenure, environmental regulations and forestry practices. Traditional shifting cultivation and land clearing, combined with widespread drought and excessive fuel loads, may produce fires of disastrous proportions. Policies governing timber harvesting and land settlement can also contribute to an increase in the susceptibility of forests to fire.
3. Where they exist, policies that directly affect fire management programmes are based on national legislation. Some countries in the Latin American/Caribbean Region have not yet established and implemented policies to underpin forest fire management strategies or to support quick and effective, early combat of forest fires.
4. Conflicts among various sectoral policies need to be resolved in ways that help sustain viable ecosystems in a holistic manner. In this regard, fires affect the functioning of ecosystems in a number of ways, including by:
5. Fires have both positive and negative effects that extend far beyond their areas of occurrence. Public attitudes towards fire are generally shaped by experiences and perceptions of its negative effects. These include the destruction of vegetation, the loss of habitat for plants and animals, threats to biological diversity, erosion in mountain areas when soil is deprived of forest cover, reduction in air quality due to smoke, haze and atmospheric pollutants, and the contribution of trace gas emissions from fires affecting global climate change. While only some of these perceptions may be correct in the situation to which they are applied, nevertheless they determine most current policy level decisions on forest fires.
6. The positive impacts of fires are less widely appreciated. Fire affects organic matter and nutrient dynamics in ways which often are beneficial and maintains habitats for species that have evolved with and are adapted to fire. Fire constitutes an important, driving factor in successional changes as it intermittently alters the composition of plant communities and the age and size structure of constituent populations. Thus, fire is an important natural phenomenon in the dynamics of most ecosystems. It is also an essential tool in human management of such systems and is often a necessary tool for maintaining diversity and productivity over time.
7. People use fire because they expect to obtain benefits from its use. The problem is not so much in its use as in its management. The overall goal of a policy on fire must be to reduce adverse effects. Three policy options may be considered.
8. The first option is to do nothing, on the grounds that the problem is overstated or that managing the widespread use of fire is too complex. This option may not be appropriate because it does not take into account, nor make use of, the considerable technical knowledge that is available, and which could be used to improve present practices.
9. The second option is actively to discourage or even attempt to ban the use of fire on the grounds that its negative effects outweigh possible benefits. This option is frequently impractical, and attempts to exclude fire from traditional land management practices have to date not been successful. Any attempt to restrict the general use of fire without providing alternatives will fail because people will simply use fire covertly. Adverse weather conditions, fuel build-up and other factors, may then lead to widespread wildfires which are difficult to control.
10. The third option, to promote a policy of planned and controlled burning, is the most viable. This option is based on the reality that the use of fire entails both advantages and disadvantages, and that what is needed is to influence and encourage people to use fire in a more responsible, controlled and beneficial manner so that they can obtain the benefits while reducing the environmental, economic and social costs or disadvantages. However, given the wide range of objectives and the resulting differences in priorities among those who manage the land and its resources, a single approach to, or "model" for its implementation is not available. The challenge is to establish a policy framework that is flexible enough to accommodate a range of different ecological conditions, traditions, cultural values, practices and social circumstances of the communities concerned, while at the same time promoting actions that will result in a better controlled pattern of use and, consequently, fewer uncontrolled fires. Added emphasis also needs to be placed on measures to improve fire management; there is currently too much stress on punitive measures, and too little capacity to enforce these, leaving most people unwilling to take overall responsibility for forest fire management.
11. The formulation and implementation of policies on the use of fire must be harmonised and closely integrated with policies influencing land ownership and how land and its resources are used. To be effective, such policies will need to be developed in conjunction with broader policies on land use in the agricultural and forestry sectors. If this is not the case, the gains and advantages in one sector may be nullified by conflicting developments in the others.
12. Emergency responses to forest fires by themselves are not adequate in protecting forests from fire. The key to safeguarding the Region's forests lies in forging a link between sustainable land use policies and practices on the one hand and emergency preparedness on the other.
13. Since the use of fire in agriculture in tropical countries is likely to gradually degrade forests over time, there is a critical need to enlist the support of the small farmer as part of the solution, and to build up a positive attitude towards sustainable use and conservation of forest ecosystems. Some countries have adopted educational measures to gain the support of farmers and to ensure sustainable land use. Efforts to modify present-day use of natural renewable resources in areas such as the Amazon, from the norm of extensive clearing and exploitation, to planned and sustainable resource utilization, will require better integration of public policies aimed at promoting economic development. This can be achieved by land use changes and programmes of human resettlement within policies designed to conserve and sustainably utilise forests and forest ecosystems. Policies should indicate clear land ownership and ensure long-term, increased agricultural productivity on deforested lands.
14. Many countries in the Region do not have policies underpinning forest fire management; others may have institutions and legislation which only exist on paper. Public policies to promote early and effective forest fire prevention and control measures are needed to help support effective and efficient organizations charged with systematic planning, management and control of forest fires.
15. Prevention of forest fires and education of the public and stakeholders, are the main keys to reducing the problem. It is important to raise awareness of the many benefits of forests, and of the fact that the indiscriminate use of fire and un-managed and indiscriminate exploitation of forests cannot continue without major negative consequences at the local, national and regional levels. It is likely to be more efficient, especially in the long run, to invest in awareness raising and effective public education programmes leading to prevention, than to spend large amounts of funds on fighting forest fires in an ad hoc manner.
16. Success in fire management is due in large part to the cooperation between government and forest landholders to form an effective detection, initial response, and fire prevention programme.
17. It is not possible to make generalized statements on the beneficial and harmful effects of fire on forest ecosystems. Information on how fire affects ecosystems is not well documented and, where available, is often written in a form not easily understood by non-professionals, including government officials. The effects may include the loss of plant and animal species or populations, and intermediate to long-term losses of habitat for plants and animals. Countries in the Region should work together to minimise losses related especially to transboundary effects of fire.
18. Fire-fighting tactics and methods, vehicles, other equipment and tools need to be used carefully, especially in ecologically fragile areas. Damage caused by tractors used in fire fighting, for example, has been found, at times, to exceed the damage caused by the fire itself.
19. In fire-adapted ecosystems, the vegetation cover often quickly re-establishes, initiating a new stage in plant succession. Such vegetation cover will help protect the burned area. In this regard, there is a need to develop checklists of essential issues to consider in human interventions following fire, and in the rehabilitation and reforestation of burned areas. Most important will be the use of appropriate species and seed sources which meet ecological as well as societal needs.
20. Legally banning shifting agricultural practices has been ineffective in the past because fire is an inexpensive way of land clearing, necessary to meet subsistence needs. In the absence of alternative methods of land clearing, one effective strategy is to teach farmers the essentials of sound burning techniques. This has been recognized in countries such as Brazil and Mexico, and has been given high priority. Training farmers in the proper techniques and appropriate timing of burning is an avenue that should be actively pursued also by other countries in the Region.
21. Alternatives to shifting agriculture, such as the introduction of agroforestry practices, have also been pursued in some countries with some success.
22. Current environmental education efforts need to be strengthened. Raising of awareness of the effects of fires on the environment should be incorporated into general education curricula and reinforced in educational campaigns aimed at rural communities and the public. Radio broadcasts are a proven and recognized tool in mounting nation-wide public awareness campaigns and issuing advance warnings on weather conditions that increase fire danger. Complementary use of modern communication techniques, including the Internet, should be considered where feasible and practicable.
23. Training is the bedrock of safe and effective fire suppression. Fire fighters who are not well trained place themselves and others at risk. Formal and on-the-job training is valuable in instilling discipline and developing correct, efficient and safe practices for fire suppression and fire use and management.
24. Light and durable hand tools need to be made available to local fire-fighting teams, especially during the initial phases of fire. Quite often appropriate tools are not available, or the local tools are so large and heavy that fire fighters using them get tired very quickly which may lead to accidents. Ergonomic studies should be consulted and if necessary complementary studies should be undertaken locally to adapt tools to fire-fighting situations and to develop safe fire-fighting techniques and methods.
25. Aircraft are effective in supporting ground action, but their use is costly and requires appropriate infrastructure. Dense tropical forest cover makes the dropping of fire fighters to the scene of a fire difficult and hinders the effectiveness of aerial fire retardants. However, countries in the Region may wish to carry out, or intensify, ongoing studies on the use of aircraft and fire retardants, and relate these to training in the application and use of aerial methods of fire fighting.
26. Cooperation among countries in the Region in fire management has increased significantly in the last decade in the aftermath of extensive forest fires that have occurred. Countries in Central America have been particularly proactive in developing cooperative efforts. These countries meet periodically to establish common fire management policies and strategies, and to exchange information and experiences. In South America, countries have at times assisted neighbouring countries on an ad hoc basis. For example, Argentina and Venezuela actively assisted Brazil during the widespread fires in the State of Roraima in March and April 1998.
27. Such cooperation among countries can be significant also in establishing shared databases, developing common fire terminology, strengthening policy-making capabilities, developing institutional and legislative frameworks, and establishing or reinforcing existing, high- level policy fora.
28. Global and regional campaigns that call attention to the need to protect forest resources from fire can be useful in focusing attention on the problem. But no matter how valuable such general campaigns may be, ultimately private owners and local people who live and work in the affected areas or areas under risk, must be involved in the choice of strategies and methodologies. In the final analysis, they are the principal actors in the successful implementation of ecosystem conservation policies, strategies and methods.
29. Forest fires constitute a problem which has major impacts on forest ecosystems, and which encompasses complex ecological, environmental, social and economic dimensions. Effective prevention, control and management of fires require that decision-making and authority, ultimately, be vested in local communities and landholders. Legally or externally imposed controls on the use of fire e.g. as a tool in land clearing, have dismally failed; they will no doubt do so again. Making private sector and local communities responsible for burning and fire management must be coupled with appropriate awareness raising campaigns, public education programmes and incentives. Existing weaknesses of local institutions will need to be addressed, as such weaknesses will make it difficult for communities to implement and maintain appropriate practices and methodologies.
30. As demonstrated in the preceding paragraphs, there is merit in devolving appropriate authority for fire control to local institutions, where they exist. Where they do not, or are not functioning effectively, such institutions will need to be established or made functional, and the capacity of communities to make their own decisions strengthened through education and awareness raising. Education programmes should be aimed at supporting decision-making within a community and/or private sector and at providing alternative solutions, rather than providing blueprints for action or dictating policies.
31. Decentralization and the shift of responsibility to the local level will take time. Progress is likely to be faster with small, cohesive groups with strong local leadership and common traditions.
32. In the light of these conclusions the Commission may wish to consider:
33. The Commission may also wish to discuss Regional, and as applicable, cross-border, cooperation to help establish shared databases to share fire detection and suppression resources, to develop institutional and legislative frameworks, and to strengthen policy-making capabilities, possibly through establishing or reinforcing existing, high-level policy fora to address the issue of forest fires.
34. Finally, the Commission may wish to deliberate on how best to harmonise policies on forest fires with other land use policies.