OPR Fire Hazard Planning Technical Advisory
Fire Hazard PlanningTechnical AdvisoryGeneral Plan Technical Advice Series2020 UpdatePublic Review Draft – November 2020
Fire Hazard Planning Technical AdvisoryState of CaliforniaGavin Newsom, GovernorGovernor’s Office of Planning and ResearchKate Gordon, DirectorAgency InformationAddress1400 10th StreetSacramento, CA 95814Phone(916) 322-2318Websitewww.opr.ca.govOPR Project ManagerErik de Kok, AICPOPR Report ContributorsBeth HotchkissDebbie FrancoElliott PickettNikki CarevelliNuin-Tara KeyInteragency Working Group MembersBoard of Forestry and Fire ProtectionEdith HanniganCalifornia Department of Forestry and FireProtection (CAL FIRE)Brian BarkleyCarmel (Mitchell) BarnhartGene PotkeyJeff HakalaRaymond MartinezShane VargasCalifornia Natural Resources AgencyJennifer MontgomeryGovernor’s Office of Emergency ServicesVictoria LaMar-HaasCalifornia Department of Housing andCommunity DevelopmentPaul McDougallCalifornia Public Utilities CommissionKoko TomassianCalifornia Department of InsuranceMike PetersonCalifornia Department of JusticeChristina Bull ArndtGovernor’s Office of Planning and ResearchPublic Review Draft – November 20202
Fire Hazard Planning Technical AdvisoryTable of ContentsTable of Contents . 31. Introduction . 42020 Update . 4Document Outline . 52. Overview of Fire Hazards and Risks to California Communities . 63. Regulatory and Policy Background . 10Federal . 10State . 154. Fire Hazard Planning Guidance . 254.1 Engagement and Outreach . 254.2 Fire Hazard and Risk Assessment . 284.3 Policy Development . 375. Example Policies . 425.1 Minimizing Risks to Existing and New Land Uses . 425.2 Fuel Modification and Land Management . 465.3 Protecting Public Health and Promoting Equity . 495.4 Disaster Response, Recovery, and Maintenance . 51References . 55Appendices . 59A.Acronyms/Abbreviations . 59B.Resources . 60C.Recent Examples of Fire Hazard Planning and Implementation . 66D.General Plan Safety Element Assessment . 71E.Other Planning and Regulatory Tools . 72F.Glossary. 75Governor’s Office of Planning and ResearchPublic Review Draft – November 20203
Fire Hazard Planning Technical AdvisoryDisclaimerBecause communities throughout California are varied and have different needs, therecommendations in this technical advisory are designed for a wide spectrum of uses andapplications. This document is meant to be a resource for the public to use at their discretion; itdoes not alter or direct public agency discretion or decision-making in preparing planningdocuments. This document should not be construed as legal advice, nor is the Governor’s Officeof Planning and Research enforcing or attempting to enforce any part of the recommendationscontained herein. (Government Code [GC] § 65035 [“It is not the intent of the Legislature tovest in the Office of Planning and Research any direct operating or regulatory powers over landuse, public works, or other state, regional, or local projects or programs.”].)1. IntroductionThis planning guide is one in a series of technical advisories provided by the Governor’s Officeof Planning and Research (OPR) as a service to professional planners, land use officials, andCalifornia Environmental Quality Act (CEQA) practitioners. OPR issues technical guidance onissues that broadly affect land use planning, including the application of CEQA. The goal of thistechnical advisory is to provide a robust planning framework for addressing fire hazards,reducing risk, and increasing resilience across California’s diverse communities and landscapes.To accomplish this goal, it is essential that local jurisdictions develop and incorporate effectivepolicies and implementation programs in their general plans and integrate their general planswith other relevant hazard and risk reduction policies, plans, and programs. This advisoryprovides guidance on those policies and programs, and is also intended to assist city and countyplanners in discussions with professionals from fire hazard prevention and mitigation, disasterpreparedness, and emergency response and recovery agencies as they work together todevelop effective fire hazard policies for the general plan.2020 UPDATEThis Fire Hazard Planning technical advisory was first published in 2015. Pursuant to therequirements of SB 901 (Dodd, 2018) and AB 2911 (Friedman, 2018), as codified in GC §65040.21, OPR is now updating this document to include “specific land use strategies to reducefire risk to buildings, infrastructure, and communities.” OPR must prepare this update “inconsultation with the Department of Forestry and Fire Protection (CAL FIRE), the State Board ofForestry and Fire Protection (State Board), and other fire and safety experts.” Per GC §65040.21, OPR must update the guidance document “not less than once every eight years.”Governor’s Office of Planning and ResearchPublic Review Draft – November 20204
Fire Hazard Planning Technical AdvisoryDOCUMENT OUTLINEThis document is organized into the following sections:1) Introduction2) Overview of Fire Hazards and Risks to California Communities: This section providesbackground and context for understanding fire hazards and risks to California’scommunities and landscapes.3) Regulatory and Policy Background: This section summarizes legal and regulatoryrequirements that directly address fire hazard planning and mitigation, including federaland state laws and regulations, and key policies, programs and guidelines thatcomplement the regulatory framework.4) Fire Hazard Planning Guidance: This section provides an overview of the key steps inthe fire hazard planning process, general recommendations for incorporating thesesteps in general plan updates, and opportunities for alignment of fire hazard planningwith other topics such as climate adaptation and local hazard mitigation plans.5) Example Policies: This section provides example fire hazard policies and implementationprograms that could be included in general plans.6) Appendices: The appendices include potential resources – including funding sources,informational guidance, networks, and tools – to support fire hazard planning, recentplanning examples from communities throughout California, and other technicalsections that support the main body of the document.Governor’s Office of Planning and ResearchPublic Review Draft – November 20205
Fire Hazard Planning Technical Advisory2. Overview of Fire Hazards and Risks toCalifornia CommunitiesFire is a natural part of California’s diverse landscapes and is vital to many ecosystems acrossthe state. For centuries, many California Native American tribes recognized thisinterdependence between fire and the environment and used prescribed burning—theintentional ignition of small fires—to maintain and restore environmental health and promoteresilience against catastrophic wildfires (Lake, 2018). However, in the 1800’s, ecosystemmanagement changed when settlers began enforcing a strict fire-suppression regime. Over thenext century, firefighters sought to extinguish all fire in California, which led to problems suchas forest densification and heightened wildfire risk (Lake, 2018; Johnston-Dodds, 2002). In the1960’s the National Park Service began to acknowledge the negative impact of fire suppressionon California’s forests and revised its policies to better co-exist with fire (Parsons & Nichols,1986). Since then, California’s communities have also had to grapple with how to sustainablymanage fire while reducing the associated risks. Today, this question has become even morecomplex to answer given the increase in frequency and severity of wildfires due to climatechange, and the challenges presented by the expansion of new development into areas proneto severe fire hazards.Figure 1: Map of California’s Wildland UrbanInterface (Available from CAL FIRE’s Fire andResource Assessment Program)Governor’s Office of Planning and ResearchPublic Review Draft – November 2020Cities and counties are frequently challengedto accommodate both current and futureresidents in need of safe and affordablehousing. In California, approximately 180,000homes need to be constructed annually tomeet demand (Department of Housing andCommunity Development, n.d.). Over thepast few decades, jurisdictions across thestate have approved many new housingunits. These are often placed within oradjacent to wildland areas, creating"wildland-urban interface" (WUI) conditions(see Figure 1). Today, approximately onethird of all homes in California are located inthe WUI (Mowery et al, 2019). When itcomes to wildfire, this trend is of particularconcern because WUI conditions areassociated with an increased risk of loss ofhuman life, property, natural resources, andeconomic assets. According to the 2018Strategic Fire Plan for California, “since theturn of the century there has been a steepincrease in structures lost compared to the1990s”.6
Fire Hazard Planning Technical AdvisoryThis rise in destroyed assets is not only because of increasing housing demand anddevelopment in the WUI; it is also correlated to an increase in average fire size and severity(Strategic Fire Plan for California, 2018). The changing climate, specifically rising temperatures,shifting wind patterns, and increasing temporal variability of water availability, is substantiallyincreasing wildfire risk across the state. The frequency of extreme fire weather during theAutumn months has more than doubled in California since the 1980s and, factoring in climatechange, this frequency is projected to increase in the future (Goss et.al, 2020). According toCalifornia’s Fourth Climate Change Assessment, if greenhouse gas emissions continue to rise,California is likely to see a 50% increase in fires larger than 25,000 acres as well as a potential77% increase in average area burned by 2100. According to some experts, we are now enteringan era of “mega-fires” or “mega-disturbances” (Stephens et.al., 2014).California has already begun to experience the effects of this new era. In 2017, two majorcatastrophic events in Ventura County and Sonoma County, the Thomas and Tubbs fires,topped the charts as the largest and most destructive wildfire events on record, respectively.However, these records were short-lived. In 2018, the Mendocino Complex Fire burned over459,000 acres, while the Camp Fire took at least 85 lives and destroyed 18,804 structures inButte County, including much of the town of Paradise (CAL FIRE, 2019), marking another year ofunprecedented loss. Between 2003 and 2018, the top 10 costliest wildland fires in the UnitedStates all occurred in California (Insurance Information Institute, 2019). Today, catastrophicwildfire continues to pose a substantial threat to California’s communities with 2020 markinganother year of record-breaking events. This year’s August Complex fire became California’sfirst “gigafire” in modern history, with over 1 million acres burned. Moreover, as shown inFigure 2, six of the 20 largest and most destructive fires in California’s history 1 occurred in 2020alone (CAL FIRE, 2020).Figure 2: California’s 20 Largest and Most Destructive Wildfires by Decade(Data Source: CAL FIRE, 2020)CAL FIRE’s historical record, at the time this document was prepared, spans from the 1932 through November 3rd,2020. Three of the largest fires in California’s history were still burning as of November 3rd, 2020.1Governor’s Office of Planning and ResearchPublic Review Draft – November 20207
Fire Hazard Planning Technical AdvisoryFigure 3: Outline of Santa Rosa’s WaterAdvisory Area Following the Tubbs Fire(Source: City of Santa Rosa 2/23/18 Advisory)Wildfires in California not only cause directdamage, but also produce indirect impacts onecosystem services and the builtenvironment (Hill et al., 2020). For example,following the Tubbs fire, benzene—a toxicchemical—was released from melted plasticpiping and entered Santa Rosa’s drinkingwater system. As a result, the cityimplemented a water advisory (see Figure 3)that lasted for 11 months (City of Santa Rosa,n.d.). Moreover, as energy utilities respondedto the growing threat and severity ofcatastrophic wildfire events and potential riskof ignitions by electrical transmission anddistribution facilities and equipment,communities across the state were affectedby public safety power shutoff (PSPS) events.In 2019, about 2.7 million people experienced extended power outages during PSPS events asutilities responded to risky weather conditions (Botts, 2019). Utility credit downgrades are alsoresulting in higher customer rates, thereby reducing access to affordable electricity (Office ofPlanning and Research, 2019).While many people have been impacted bywildfire, certain groups are particularlyvulnerable to and disproportionatelyaffected by these events. For instance,during the Thomas and Tubbs fires,counties struggled to provide Spanishspeakers with timely emergency alerts andinformation (Mendez and Flores-Haro,2019; Botts and Freedman, 2017; Roos,2018). Moreover, during the Camp Fire,elderly residents and persons withdisabilities were less likely to escape(Verzoni, 2019). The wildfire smoke fromthese events also had adverse healthimpacts downwind, particularly on outdoorworkers and individuals with underlyinghealth conditions. Similarly, the impactsfrom PSPS events acutely affected portionsof the broader community, particularly lowincome individuals and personsexperiencing food insecurity (Botts, 2019).Governor’s Office of Planning and ResearchPublic Review Draft – November 2020Bi-lingual Social Media MessagingThe U.S. Fire Administration created a social mediatoolkit to promote fire preparedness and safety.Their messaging is currently available in Spanish andEnglish but may also be customized for additionalaudiences.8
Fire Hazard Planning Technical AdvisoryRebuilding and recovery from wildfire events varies across income and demographic groups aswell. For instance, “many individuals in rural areas, low-income neighborhoods, and immigrantcommunities do not have access to the resources necessary to pay for insurance [or]rebuilding” after a wildfire and, therefore, take a longer time to recover (Davies et al., 2018).Additionally, wildfires can exacerbate existing mental health conditions and lead to posttraumatic stress disorder (PTSD), low self-esteem, and/or depression for vulnerablepopulations, including children and the elderly (Hill et al., 2020). Following the 2017 fires inSonoma County, the Federal Emergency Management Agency (FEMA) referred thousands ofresidents to mental health services (Kuipers, 2019) and organizations created a Wildfire MentalHealth Collaborative, which supported residents for nearly three years following the event(Healthcare Foundation Northern Sonoma County, n.d.).Addressing the risks, impacts, and inequities caused by wildfire requires a holistic andintegrated approach. California is working with local, regional, tribal, and federal partners todevelop and implement a wide array of solutions in order to protect public health, promoteresilience, and support local economies. CAL FIRE’s Community Wildfire Prevention &Mitigation Report outlines how the State will implement strategies such as fuel modification,prescribed burning, home hardening, and public education to reduce future fire risk. Inaddition, California’s Forest Management Task force is exploring avenues to address treemortality and restore forests by developing new markets that will simultaneously promoteeconomic sustainability. As communities plan for the future, they too can rise to the challenge,working collaboratively to address wildfire risk and build resilience moving forward.Governor’s Office of Planning and ResearchPublic Review Draft – November 20209
Fire Hazard Planning Technical Advisory3. Regulatory and Policy BackgroundThis section describes federal and state laws, regulations, and policies related to fire hazardplanning and mitigation, along with major programs and guidelines that complement thecurrent regulatory framework. It is not intended to be an exhaustive list of all fire-related lawsor policies that may exist. A general overview is depicted in Figure 4, followed by summarylevel descriptions.Figure 4: Overview of California’s Wildfire Laws, Regulations, Plans, and Policies3.1 FEDERALNational Cohesive Wildland Fire Management StrategyIn response to requirements of the Federal Land Assistance, Management, and EnhancementAct of 2009, the Wildland Fire Leadership Council directed the development of the NationalCohesive Wildland Fire Management Strategy (Cohesive Strategy). The Cohesive Strategy is acollaborative process with active involvement of all levels of government and nongovernmental organizations, as well as the public, to seek national, all-lands solutions towildland fire management issues. The strategy is regionally oriented and science based.The Cohesive Strategy identifies three primary goals as presenting the greatest opportunitiesfor making a positive difference in addressing wildland fire problems and achieving their vision(See Figure 5).Governor’s Office of Planning and ResearchPublic Review Draft – November 202010
Fire Hazard Planning Technical AdvisoryFigure 5: The Cohesive Strategy’s Vison, National Goals, and National ChallengesThe Cohesive Strategy’s goals are as follows:1) Restoring and maintaining resilient landscapes: The strategy must recognize the currentecosystem health and variability of resilient landscapes from geographic area togeographic area, in
Fire is a natural part of California’s diverse landscapes and is vital to many ecosystems across the state. For centuries, many California Native American tribes recognized this interdependence between fire and the environment and used prescribed burning—the
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