Project no. Fp6-018505 Project Acronym fire paradox

4.5Spain Case Study

Nearly a third of the approximately 75.000 forest fires recorded during 2005 in the five Southern most affected members (Portugal, Spain, France, Italy and Greece) occurred in Spain (EFFIS, 2006). Over the last ten years, the average number of forest fires in Spain has been 21.000 per year. The majority of these have occurred in the northwest of the country and approximately half were recorded in Galicia, the Autonomous Region in the extreme northwest of Spain. Thus, a quarter of the forest fires in Europe occurs in Galicia (Hernández, 2006).

2005 was the worst year of the decade. 179.928 hectares of woodland burned in 26,261 fires and small fires recorded. In 2006, the downward trend in the number of fires and surface area affected in the first few months was shattered by the spate of fires which devastated Galicia from 3 to 15 August and which destroyed over 87.000 ha³.

Consequently, the deployment of means and human resources for purposes of detection and planning in the fight against fires is generally associated with the distribution of forest surface area (Figure 23) and past catastrophes (Figure 24). In Galicia, because of the large number of forest fires that occurred in 2006, the size of the fire-fighting contingent has grown remarkably; this year (2007) some 10.000 individuals have participated in guarding woodlands.

Source: Second and Third National Woodland Inventory. Ministry of the Environment

Figure 23 - Distribution of woodland surface area in Spain


Source: Ministry of the Environment (2006).

Figure 24 - Forest Fires in Spain in 2005

4.5.1Legislative framework

Fire detection in Spain is regulated at the state level within the forestry and civil protection regulatory framework (Table 9).

The 2003 Forestry Law modifies and updates the law in force prior to the transfer of responsibility to the Autonomous Regions (the largest territorial administrative units in Spain), is the basic reference point at the national level. However, the 2002 Spanish Forestry Plan lays down the specific measures established in law concerning fire detection in Spain: in terms of coordination, hazard prediction, promoting professionalism, strengthening and enhancing the mobile vigilance system and a more intensive use of new technologies.

Table 9 - Fire detection treatment in civil protection regulations

SCOPE	REGULATION	DETERMINATIONS
State	Basic Regulation 1992	Coordination in the event of an emergency
		The risk of forest fires will be the subject of special plans in those areas of the country where they are required
		Promotion and support for citizens’ voluntary and disinterested cooperation (Civil Protection volunteers)
	Basic Directive on Emergency Planning for Forest Fires 1993	Civil Protection plans for forest fire emergencies are developed by the autonomous communities
		Content of plans
		The forest fire detection and notification network must enable immediate information to be provided and assessed on fires which might lead to emergency situations
		The development of local plans must complete the functions of the autonomous region plans
Autonomous Regions	Emergency forest fire plan Periodic actions	Organisational structure (prevention and extinction)
		Means and resources available for implementation and coordination
		Danger periods, during which the deployment of means proposed may vary (they are usually regulated annually by Order)

According to the Basic Directive on Emergency Forest Fire Planning of 1993, it is possible to develop local plans; these are envisaged and defined in the corresponding autonomous region plans. Thus, for example, in the Canary Islands the inter-island Councils produce their own plans and these must be approved by the regional government. In this regard, it is also relevant to mention the Complementary Surveillance Plan against Forest Fires in the province of Barcelona, which rounds out the security activities stipulated in the Autonomous Region Plan.

4.5.2Stakeholders

Many groups work in operations aimed at preventing and extinguishing forest fires in Spain. According to Ministry for the Environment data, in 2005 a total of 336.833 people participated in these operations. The largest group was comprised of unskilled crew and team members (188.949), followed by professional fire-fighters (48.501), organised volunteers (12.270) and other civilian personnel (29.897), technical personnel (4.749) and forest rangers (33.931), Civil Guard, autonomous region police forces and other law enforcement agencies (18.141) and army personnel (395) (Spanish Ministry of the Environment, 2006).

The functions of each of the stakeholders involved in detection tasks are outlined below.

1. 
   Public administrations: forest rangers and contract personnel:
   

Defence against forest fires in Spain is the responsibility of the Autonomous Communities. For this purpose, they receive funds from Central Government, which are employed in various detection tasks, such as increasing security in wooded areas and scrubland or forming and equipping groups of volunteers.

The Ministry of the Environment, for its part, is responsible for providing support to regional governments within the guidelines of the Spanish Forestry Plan. In addition, the Ministry of the Interior, through Civil Protection, also has responsibilities in this area.

The Autonomous Regions perform their duties by guarding against, detecting and locating forest fires through the endeavours of their respective forest ranger forces or temporary recruits. For this purpose, administrations sometimes have recourse to contracting outside companies through a bidding process.

2. 
   Civil Guard – Ministry of the Interior
   

The Civil Guard has a Special Forest Fire Prevention Plan, which is implemented between 1 June and 30 September, with the aim of strengthening the permanent measures established with regard to forest fires. This plan emphasises security measures by maintaining a maximum alert status and redoubling efforts during the periods when weather hazard maps indicate heightened risk.

Development of the plan is conducted by specific groups within the Civil Guard force, such as the Nature Protection Service (SEPRONA), the Mountain Area Service, the Rural Security Group, the Air or Rural Service, within the Forest Fire Plan of each Autonomous Region.

3. 
   Armed Forces - Ministry of Defence
   

In 2007, for the first time, a special division of the armed forces has been assigned to Civil Protection to tackle forest fires. This unit is only called upon in emergencies. However, in Galicia the army is also performing security duties, patrolling night and day.

The measures in Galicia are based on the gradual deployment of ground patrols (three soldiers in each) and air vigilance, with three levels of readiness according to the gravity of the situation. During maximum alert, 75 patrols and 4 helicopters may be deployed.

4. 
   Volunteers
   

Both the 2003 Forestry Law and Autonomous Region forest laws promote the creation of volunteer groups by providing financial support and establishing the regulatory framework for their activities. Among the functions they may perform is participation in preventive operational patrols such as forest vigilance; they are always coordinated by the appropriate competent service.

Mixed (private/ public) volunteer organisations such as the Forest Defence Associations (ADF) in Catalonia and Andalusia are especially noteworthy. These associations comprise both individuals and local corporations and NGO’s (i.e., associations of forest owners, farmers’ associations, ecological groups). They have a municipal base and patrolling and surveillance of their area are two of their major activities.

Other volunteer groups that participate in detection are the Neighbourhood Forest Watch Associations (Galicia) and the Forest Fire Prevention and Extinguishing Associations (Extremadura).

5. 
   Citizens
   

As article 45 of the 2003 Forestry Law stipulates, any person detecting the existence or outbreak of a forest fire is obliged to immediately alert the competent entities or emergency services.