0561-B3

Development of New Forest Fire Prevention, Control Strategies in Turkey

Dr. Ahmet ŞENYAZ ¹

Summary

Forestry in Turkey, as in other parts of the world, is confronted with some challenges in the twenty-first century. One of the greatest challenges facing Turkish forestry is the need to find the ways to protect forests against fires in a cost-effective manner and by taking all components of fire management into account(SENYAZ,2000).

In Turkey most of the fires are man-caused (%97). Some causes of fire incidences have been lying outside the forest sector, such as rural poverty and privation or the effects of other public policies related to land tenure.

On the other hand, on the basis of data of last ten years, the annual average number of fires and area burnt are below the other Mediterranean countries. However, fire suppression costs have been increasingly risen. Further investment in fire suppression is likely give diminishing returns. Moreover, General Directorate of Forestry (GDF) focuses its attention on suppression activities and other activities such as research, training, raising public awareness and innovative preventive measures have not been taken into consideration adequately.

A project TCP/TUR/6713, funded by FAO, "Development of Modern Forest Fire Prevention and Control Strategies" indicated the need to reformulate a National Forest Fire Management Policy by taking into consideration of all aspects of fire situation (ecological, socio-economic and cultural) in the country and following the innovations of fire management in some Mediterranean countries.

To begin with, there is an argent need for forestry agency to adopt fire management concept instead of fire suppression as a whole. In addition, public policies effecting forest fires need to be reformulated and new approaches should be developed to involve all stakeholders in fire management decisions.

Introduction

Total land area of Turkey is 77,079 million hectares of which 20, 7 million hectares is forested area, representing about 25 percent of total land area. Most of forests belong to Government (99 percent). About 12 million ha of forested areas is under the fire risk. Most fires break out in the Mediterranean, Aegean and Marmara regions, which are characterized by high temperature, low precipitation and high visitor density during fire season.

Some 7 million forest villages live in forested areas. Although the number of villagers is on the decline, the number of urban people visiting forests is on the increase. Forest village communities has shown a significant decrease especially during recent decades as a result of high rate of migration from such areas for finding jobs and better living conditions in the urban centers.

General Directorate of Forestry (GDF) has the responsibility of fire prevention, suppression and rehabilitation of forests after fire. In accordance with the forest law villagers, local authorities, and military are also responsible for fighting fires. However fire management activities of GDF mainly focuses on fire suppression.

Causes of Forest Fires and Number of Fires

It is very important to know the causes of fires in order to develop strategies to eliminate the number of fires. Accuracy of detailed data and records kept by officers are very important. Without understanding the causes of fires, it is not possible to develop effective prevention strategies. On the other hand, it will be misleading to attribute general statistical data of fire causes to all regions sensitive to fire. Percentage of fire causes varies according to district, because of socio-economic and ecological conditions of the regions.

According to GDF data, general classification of causes of forest fires is the following (Figure1):

• 36 % negligence and carelessness (picnic, shepherd's campfire, cigarette butts, garbage, hunting, agricultural burning, transformers, traffic and others)
• 13 % Intentional (conflict, occupying, arsonist )
• 3 % lighting
• 48 % unknown

The precise causes of the majority of the fires are not known, although they are human induced. Most fires are caused by negligence and carelessness. This means that prevention strategies need to be focused on raising awareness of the public and target groups. Agricultural burning still remains the single largest cause (% 15 in 1998) of forest fire. Agricultural burning is prohibited in areas adjoining forest. Data indicate however that Forest fire damage due to agricultural burning increased after the enactment of this legislation in 1995. In the other hand, transformers cause forest fires in remote forested areas. This kind of fires can be only prevented in collaboration with related agencies.

Figure 1. Percentages of causes of forest fires in Turkey.

The intentional fires have still remained because of ineffective policies. Frequently policy development does not consider the underlying causes of fire incidence and spread which may lie outside the forest sector such as rural poverty and deprivation or the effects of other public policies related to land use and incentives (FAO, 1999).

According to data of last ten years, average 2.000 forest fires occur and 12.000 ha forest areas burn annually (Table 1). It can be seen that the number of fires and area burnt is not more than other Mediterranean countries. However, GDF has been allocated % 20 of its budget to combat forest fires and it is not clear that how much money spend for prevention activities. The following table shows that number of fires between 1990 and 2002.

Table 1. Number of Fires and Area Burnt in Turkey between 1990 and 2002

Fire Prevention in Turkey

Although current policies are mainly focused on fire suppression, some fire prevention activities are carried out by General Directorate of Forestry. Fire prevention activities can be summarized as follows:

A) Security roads and fire breaks

There is a network of security roads and fire breaks in the forest areas which prevent the spread of fires and reduce the continuity of fuels. A total of 17700 km security roads have been constructed by the end of the year 1998, and maintenance of these roads are regularly done prior to fire seasons.

In order to limit the climatic factors through windbreak establishment and to create natural barrier against fire, on each side of security roads two or more rows of Cuppressus semiperverens are planted. Rows of Cuppressus act as a wind break thereby preventing the spread of fire. C. Semperverens variety prymidalis is advantageous over that of variety horizantalis as the former has branches near ground creating a thick green barrier.

B) Prescribed Burning

Prescribed burning is not practiced in Turkey.

C) Education Training and Extension

In order to reduce the risk of ignition by human activities, some education, training and extension programs are carried out by the Training Department of the General Directorate of Forestry. Main objectives of this programs are:

• To create awareness among general public about dangers and effects of the forest fires;
• To educate school children on forest fires through seminars, competitions, field trips, scouting etc.;
• To demonstrate the results and effects of the forest fires;
• To train the military groups and the people working in the tourism sector on the fire behaviors and suppression techniques;
• To train the technical staff and fire workers about fire prevention and control;
• To introduce fire prevention and control activities to the media and NGO's;
• To inform people importance of detection and early intervention and get their support for fire detection.

Under these programs, target groups are divided into sub-groups as follows:

• General public;
• Forest villagers; shepherds
• Children and young people;
• Technical staff and fire workers;
• Media and NGO's; hunters
• Military groups;
• Tourism sector (tourists and tourism workers).

In order to achieve the goals set for the effective fire prevention, following activities are carried out:

• Preparation and distribution of extension materials; this materials includes some posters, magazines, periodicals, stickers, spot and documentary TV films. This material includes information on the causes of fires, effects of forest fires, functions of forests etc.
• Organization of special day activities; during the celebration of World Forestry Day on 21 ^st March, Tree Weeks, etc., some conferences, panels, radio and TV interviews are organized so as to take attention of the public to forests and forestry issues including forest fires.
• Education and training program for school children; this program includes theatre and cinema shows, competitions, seminars, scouting, field trips etc.
• Training of hunters and shepherds; taken into account the fact that important amount of fires are caused by hunter and shepherds, some training activities are organized for the these groups with the cooperation of local governance and hunter associations.
• Training and public awareness programs for forest villagers; this includes demonstration of burnt areas through field trips, regular group meetings, warning local people against fires during the high risky days, awarding some villagers for their success in fire prevention and control, etc.
• Training programs for tourism sector; as the most of the tourism establishments are located inside or around the forests, it is very important for tourism agencies to take necessary precautions against fires and to explain their clients (tourists) how they could prevent forest fires, and in case of fire, how they take part in the fire if they like. For this purpose, representatives of tourism agencies are informed about forest fires and fire management, and the tourists when they entered the recreational areas are warned about forest fires and encouraged not to use picnic fires. In recreational areas, some fire prevention signs are displayed and the mobile crews distribute some brochures to the tourists during the day.

All these activities intend to inform people about the importance of forest protection, causes and effects of the forest fires and how the fires can be prevented. However, there is need to find new ways to make them committed to fire prevention activities. It means that all people must understand that fire prevention is not only GDF's responsibility but also their duty.

Public Involvement in Forest Fires Prevention and Control

It was assumed that inadequate value credited to forests is one of the major causes in the failure of sustainable forest management (FAO, 1997). In recent years, forests have received attention by urban of people as the environmental concerns have increased..

There are discrepancies between profile of rural people and urban people. Urban people demand forest areas for recreation and leisure time. They generally visit forest areas at the weekend or summer season and their environmental concerns of forest are getting higher. However most of visitors need to be warned about fire risks and informed on forest fires. There are also discrepancies between profiles of urban people. As some people are well educated, others are not. And most of people having picnic in the forest prefer to barbecue and drink alcohol. In addition, it is very difficult to control people preferring to visit remote areas other than those prefer allocated areas for picnic.

To make people aware, GDF has signed a protocol with Ministry of State, which is responsible for scouting activities. Pursuant to this protocol 21 students from Universities went on a camping and were trained for a week in Antalya and Mugla. They were declared as forest volunteers and made propaganda in villages and at some tourist places. Other protocol was with some NGOs such Association for Protection of Natural Life, SOS Environment Volunteer Platform, ÇEKUL Foundation, TEMA Foundation, Association of Biologist, Association for Blacksea Education, Culture and Environment Foundation, Association for Green Turkey Foresters, İstanbul University Faculty of Forestry. In 1998 Ministry of Forestry launched a lot of activities to increase public awareness and participation. On the occasion of anniversary of Foundation of the Republic of Turkey, National Support Campaigns was organized for prevention and control of forest fires. All social groups such as, sports clubs, vocational organizations, press, NGOs, famous musicians, artists and actors were invited to this campaign.

Although some kind of initiatives that aim to involve NGOs and interest groups in fire prevention activities, this kind of activities involve continuity and decline in number of fires. On the contrary, number of fires has increased over the last years. In the other hand continued emphasis on emergency response will not prevent large and damaging fires in the future. And fire is an important element in Mediterranean forest ecosystem to regenerate old forests. There is also urgent need to make people informed on ecological aspects of fire. Media is very sensitive to forest fires and they support to policies that exclude fires from the forest. People and also media need for training on all aspects of forest fires. Prescribed burning and other technical measures that reduce fire risk and damages have to be publicized to people.

As for rural people, there is little interaction between foresters and villagers. The villagers do not have any training or motivation to join in forest fire prevention and control activities. Although according to law they have responsibility in fires suppression, they hesitate to join suppression activities because they believe GDF has enough fire workers to suppress fires and pay them much. In fact 80 percent of fire suppression costs are consisted of wages of fire workers employed temporarily during the fire season. There is no intention to establish voluntary fire suppression groups in the villages.

In the other hand forest resources are managed according to the forest management plans prepared by the GDF at central level. During the preparation of management plans there is no consultation with the local people. Socio-economic conditions of the villages are not taken into consideration. This means that local people have no say in formulation and implementation of management plans. Utilization of forest resources by local people, for example, grazing animals inside forests or collection of non-woods, which is perceived by the villagers as a traditional right, is subject to the permission of forestry administration.

The villagers living in or near protected areas suffer from implementations of the forestry administration, as well. Protected areas are not established with the consultation of people living in the area and their utilization rights are restricted by forestry administration due to protection statutes. Moreover, incomes acquired in the protected areas are transferred to the private entrepreneur, forest administration and treasury.

A people centered approach can further increase the impact of forests and trees in reducing poverty. What is needed is the removal of the barriers that prevent forests from contributing to livelihoods of forest villagers (FAO, 2001).

Briefly, this management system has caused conflicts between forestry administration and local people (forest dwellers) and resulted in intentional fires.

Recommendations

• The forest area burnt in Turkey is within acceptable limits, however suppression costs are very high. To make fire management cost effective, some technical issues need to be concerned such as prescribed burning, fire danger rating, fire behavior, as well as preventive measures(FAO, 2000).
• Most of fires are human induced. Institution-building in rural areas needs to be strengthened and public awareness and education campaigns should be mounted to inculcate among the people living in the forests and understanding that it is in their own interest to protect to forest resources and avoid causing adverse environmental impact.
• Although there are some initiatives that aim to involve NGOs in fire prevention and control activities, in general adequate participation of NGOs is lacking. GDF should strengthen collaboration with NGOs in fire prevention and control.
• Because there is little interaction between forester and villagers and the villagers don't have tools, training and motivation to participate in forest fire prevention forestry agency take some measures to involve villagers in fire prevention and control
• Controlled grazing is a tool for reducing fuel load in the fire sensitive areas. This will also provide opportunity for villagers to generate income and protect their culture. Various silvicultural practices need to be carried out in conformity with fire management policy. Fuel reduction is one of the most important steps in fire control.
• Agricultural burning is the single largest fire- responsible for over 15% of total number of annual fires in spite of legislation that prohibits agricultural burning. The relevant legislation should be reviewed and agricultural burning allowed under control.
• Some policies have to be changed to prevent intentional fires. Conflicts between forest administration and villagers should be settled and relationships need to be rebuilt and income generating activities need to be developed for rural people dependent on forests. The involvement of local communities in the process of forest management will ensure sustainable development and management of forests.
• A Forest Fire Management Center should be established. This center will be responsible for fire researches, development and training. This center may inform people on forest fires and publish results of researches to the people.
• There is an urgent need to develop a Fire Danger Rating System that is a useful tool in forest fire management and a basic necessity for an effective fire control program. There is also need for some simulation techniques. In economic analysis term simulation offers the possibility of valuing the cost of different suppression strategies and preventive planning associated with vegetation management such as qualitative and spatial change of fuel models(USDA, 2000)

References

FAO, 1997. Forest Valuation for Decision making lessons of experience and proposals for improvement

FAO, 1999. FAO Meetings on Public Policies Affecting Forest Fires.

FAO, 1999. The participatory process for supporting collaborative management of Natural resources: An overview.

FAO, 2000. TCP/TUR/6713 Technical Cooperation Program. Development of Modern Forest Fire Prevention and Control Strategies for Turkey. Terminal Statement.

FAO, 2001. State of the World Forest.

FAO, 2001. How Forest can Reduce Poverty.

Senyaz, A,. 2000. Economic Analysis of Protection Systems Against Forest Fire. Unpublished Ph.D. Thesis. University of Istanbul. Faculty of Forestry.

USDA, 2000. Pacific Southwest Research station Proceedings of the Symposium on Fire Economics, Planning and Policy: Bottom Lines.

WORLD BANK, 2001. Turkey Forestry Sector Review.

¹ Ministry of Forestry,
Ataturk Bulvari No: 153
Bakanliklar/ANKARA/TURKEY
Tel: +90-312-4177730
E-mail: [email protected]