ANNEX 4.

Report of Working Group 2:
Inter-Country Agreements to Share Resources in Emergencies

The working group addressed issues, constraints and recommend actions relating to inter-country Agreements to establish operational procedures and share resources, information, personnel and equipment in situations of emergency. This would include review of the feasibility to share heavy land and aerial equipment and prospects for development on a wider geographic basis.

Working Group 2 (Legal Instruments)

Balatsos, P. (Greece)
Bekele, M. (Ethiopia)
Cedeño Sánchez, O. (Mexico)
Heine, J. (South Africa)
Kizmaz, M. (Turkey)
Mutch, R. (USA)
Sanhueza, P. (Chile)
Sneeuwjagt, R. (Australia)
Vélez Muñoz, R. (Spain)
Paveri, M. (FAO, Chief, FONP)
Mekouar, A. (FAO, LEGN)
Allard, G. (FAO, FORM)
Malagnoux, M. (FAO, FORC)

Forest Fire Emergency Cooperation Agreements

The Group identified the existence of a number of Forest Fire Emergency Co-operation Agreements at various levels, including:-

• in-country Agreements

  - central level
  - local level

• bilateral Agreements; and

• multilateral Agreements

A list of Agreements known to exist and referred to by the experts in given in Annex 5.

It will be necessary to use the comprehensive and proven instruments as base documents for other countries seeking or providing assistance to derive their own Agreements suited to their unique circumstances.

Key contents to be considered by countries as a base for preparation of their Agreements are listed in Annex 6.

RECOMMENDATIONS

Considering that:

Forest fire management was closely linked to sustainable forest management practices;

Member countries were strongly encouraged to establish sustainable forest management policies and practices to reduce the flammability of forests. If sustainable practices were not established, then emergency responses of any kind would ultimately fail;

Member countries were encouraged to activate strong and effective fire prevention campaigns. It was better to prevent a wildfire than fight one. Prevention implies public awareness, equipment and infrastructure preparation, enforcement and fire fuel management;

Member countries were encouraged to develop effective emergency response procedures internally, so that they would be able to more effectively receive outside assistance;

Widespread emergencies in recent years in all regions of the world had underscored the importance of having International Agreements established in advance of fires;

Efficient emergency assistance required prior planning among all parties due to the nature of forest fires to prepare personnel, organisation, equipment, procedures, etc.

It was recommended that FAO and ITTO and other relevant partners:-

•  Develop Agreements bilaterally and multilaterally (at regional or global levels, as appropriate), with due consideration to conditions which may vary region by region;

•  Encourage the development of new Agreements through existing regional and other mechanisms. taking into consideration experiences to date;

•  Provide technical support to member countries in development of Agreements at national and regional levels;

•  Compile an inventory of existing Agreements to serve as models for others. In this regard, FAO may consider distributing a questionnaire soliciting opportunities for new Agreements;

•  Activate a task force to track and monitor progress in the development of Agreements and develop an action plan that defines objectives, outputs, activities, inputs, costs, timeframes and responsibilities to implement the recommendations of the International Expert Meeting;

•  Review possibilities for developing appropriate funding mechanisms to encourage action leading to the development of Agreements;

•  Assist countries to describe and establish mutually compatible incident management organisation systems to facilitate the integration of international resources;

•  Review and apply regional or eco-regional, or global, "Fire Season Tables", showing coincidence of overlapping fire seasons in determining availability of international resources (example given in Annex 7.);

•  Review the possibilities to coordinate the tasks of information updates and sharing;

•  Review recommendations and identify appropriate organizations and agencies to take action;

•  Develop training, technical exchanges and briefing programmes between countries in non-crisis situations in preparation for emergency response;

•  Develop emergency simulation response exercises among countries;

•  Assist to establish an international forest fire information centre to facilitiate the sharing of world-wide information among all partners regarding such items as: Agreements, resources availability, contact points, etc. This centre would provide real time situation reports and conditions. In addition, the centre would be institutionalized to provide an advisory role in assisting countries to develop Agreements and respond to emergencies;

• Disseminate information on issues and experiences in the use of volunteers, local communities and other resources in prevention and remedial action in forest fire management;.

• Disseminate information and support training in the application of airborne and remote sensing technologies as tools in integrated fire management.

ANNEX 5.

Some Existing Agreements for Mutual Assistance and Emergency Response¹²

Agreement Type	Country	Agreement Partner Descriptions
In-country
	USA	National, with individual States (National Wildfire Coordinating Group
		National with Military
	Mexico	Federal Government with individual States
		Federal (SEMARNAP) with Military
	Chile	National Government with Regions
		National Government with Private Sector
		Bilateral Agreements between Regions
		Bilateral Agreements between Regions and Private Sector
		Private to Private Sector Agreements
		Other Agreements with Armed Forces, Fire Brigades etc
	Australia	Federal Government with individual States (large emergencies)
		State to State agreements
	South Africa	Agreements with Military
		Agreements between Provinces and National Government (under formulation)
	France	Prevention done within Forestry Sector
		Fire Suppression under Civil Society (Military Corps)
		Centralized authority decides how, without formal Agreements
		Local Authorities have local mechanisms to share resources
	Ethiopia	Individual Regions responsible
		Federal level have funds for Emergency Plans to share resources
	Spain	National Coordinating Committee establishes rules for Sharing Central Government resources to fight fire when Autonomous Region resources need
		Bilateral Agreements between Regions (principle of single command, each agency covers costs of services provided)
		Agreements with Armed Forces
	Greece	Resources centrally allocated in cooperation with Districts for fire suppression
		Prevention: National leadership with funding to Regions
		Involvement of Local Authorities through personnel, volunteers
		Regions have Emergency Plans communicated to National Government
Bilateral Agreements
	Spain	Portugal, France and Morocco (Aircraft and equipment), West Mediterranean
		Specific Coordinating Centre in each Country, Cost paid by receiving countries
	USA	USA with Mexico
		USA with Canada
		USA and Canada with Australia and New Zealand (under preparation)
	Chile	Chile with Argentina
	Turkey	Central Government, Memo of Understanding with Other Countries for Fire Resources, allocated centrally and distributed at the local level

ANNEX 6.

Provisional¹³ Legal and Operational Checklists for Developing Forest Fire Emergency Agreements (Bilateral or Multi-lateral)

I National Legislation promoting International Agreements and establishing the framework for such Agreements (This requirement may vary by country in terms of process) A. An example exists between Canada and USA B An example exists between USA and Mexico II Annual Operating Plan specifying details of how to accomplish emergency assistance. III Protocols to promote technical exchanges of personnel between countries (a non-emergency assistance)

I National Legislation or Other Enabling Protocols for Establishing Contents (Elements) for Agreements:

1 Establish Agreements between Governments for emergency assistance if they do not exist. Determine appropriate channels for establishing Agreements. This will differ by country as how this is to be done.

2 Identify the Central Agency or Contact Point to coordinate the exchange of resources.

3 Specify Sending Party and Receiving Party.

4 Specify type of resources that may be sent or received.

5 Specify how costs will be allocated. Usually Receiving Party pays.

6 Specify time for reimbursements.

7 Specify who controls resources.

8 Specify how to cover losses and damages.

9 Specify the process for recalling resources to return them to sending party.

10 Specify Liability arrangements for damages (both ways). Fatal accidents, insurance, etc.

11 Specify qualifications of people.

12 Specify how to mediate disputes.

Note: Principle for success: Good will and practical solutions are essential in developing Agreements

II Checklist for Annual Operating Plan to Provide Emergency Fire Assistance (Bilaterally or Multi-laterally)

1 State purpose of assistance.

2 Cite authorities.

3 Detail general procedures

(i) Who requests (how?)
(ii) Reimbursements
(iii) Identify types of resources
(iv) Personnel

(a) Daily rate and pay
(b) Lodging
(c) Meals and travel
(d) Medical costs, insurance coverage
(e) Safety, health and welfare
(f) Safety equipment
(g) Who provides liaison?
(h) Compensation claims for death and injury
(i) Specify indemnity procedures

4 Equipment and supplies.

5 Billing and payment procedures and currencies.

6 Situation reporting daily.

7 Authorization, signatures.

8 Process for re-call of resources.

9 Customs considerations.

10 Resolution of logistical limitations and constraints.

Note 1: Successful emergency assistance requires careful prior planning and review.

Note 2: Elements may need to be adapted to suit the conditions existing in different countries

III Protocols for Technical Exchanges of Personnel Among Countries

1 Authority

2 Qualifications and Objectives

3 Requests

4 Procedures and Payment (loss, damage, injury)

5 Documentation report that evaluates the exchange

6 Signatures for Approval

Additional Notes:

Agreements, Operational Plans and Protocols could be to:

1 Provide for exchanges of technical information, not people, on a recurring basis.

2 Share information regarding individual serious fires to other partners.

3 Exchange information regarding technical support in fighting fires from private vendors who supply equipment.

4 Consider contract requirements for aircraft.

5 Determine responsibilities and opportunities for providing technical assistance to developing countries. Identify countries or organizations to provide such assistance.

ANNEX 7.

SAMPLE OF FIRE SEASONS ON DIFFERENT CONTINENTS¹⁴

Country

Jan

Feb

Mar

Apr

May

Jun

Jul

Aug

Sep

Oct

Nov

Dec

Europe

Spain

Italy

Greece

Turkey

Baltic States

Russia

N. America

USA

Canada

C/S America

Mexico

Brazil

Chile

Asia

Indonesia

Thailand

Pacific

Australia

NZ

Africa

Ethiopia

E. Africa

Sth Africa

Difficult Fire Season - Help May be Needed from other Countries

Generally Lesser Danger

Low Danger, Help May be Offered to Other Countries

This table represents the recording of fire seasons by experts attending the meeting and is reproduced as an example only. The experts recommended that a schedule on these lines be prepared to evaluate the high, medium and low danger periods in all countries and regions as a first step to gauge potential for giving and/or receiving international assistance, to be requested and organizationally prepared in advance of high risk periods.

ANNEX 8.

PROVISIONAL ACTION PLAN AND SCHEDULE FOR IMPLEMENTATION OF RECOMMENDATIONS

(In accordance with expert meeting recommendation, no attempt was made to prioritize actions)

Recommended		Provisional Time Schedule of Actions by Month- starting April 2001
Actions		1	2	3	4	5	6	7	8	9	10	11	12	13	14	15	16	17	18	19	20	21	22	23	24
Policy	(i)
	(ii)
Technical Support	(i)
	(ii)
	(iii)
	(iv)
	(v)
	(vi)
Information & Data Base	(i)
	(ii)
	(iii)
	(iv)
	(v)
Emergency Response	(i)
	(ii)
	(iii)
	(iv)
	(v)
	(vi)
	(vii)
	(viii)
	(ix)
	(x)
Collaborating Agencies	(i)
	(ii)
Legend					Approximate Duration of Activity													Continuous Activity