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The Archives: September 1998

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Front Line Report: Flagler County Weathers Florida Fire Seige '98

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Florida Fire Seige '98

By ROBERT M. WINSTON

Siege is defined in Webster's Collegiate Dictionary as a persistent attack. The state of Florida was under "attack" this year from one of humankind's most destructive and relentless enemies: fire.

From late May through mid-July, this all-consuming foe marched across nearly half a million acres of dry Florida vegetation and ate its way into wildland/urban interface areas. At least 2,236 fires ignited, creating numerous "complexes" of fires. Local st ructural firefighters and wildland firefighters from the Florida Division of Forestry became overwhelmed by the numbers and sizes of fires.

Wild animals took flight. Tens of thousands of residents fled their homes and businesses as the fires advanced in waves of searing flames and choking, blinding smoke. The smoke blanketed vast areas of Florida for days, then weeks at a time, creating respi ratory problems and causing major highways to be closed.

All of Florida mobilized in an attempt to fend off its attacker. A state of emergency was declared by Governor Lawton Chiles, sending in reinforcements in the form of structural and wildland firefighters from across the United States and Canada. A group o f 16 wildland firefighters from Russia who were in the western U.S. on a training exchange program also pitched in.

The military also was activated, mobilizing 1,500 National Guard troops from Florida and Georgia, as were emergency medical services, law enforcement agencies, the American Red Cross and many religious and private support organizations. The Civil Air Patr ol also assisted, and the Federal Emergency Management Agency (FEMA) joined in the battle. On July 9, President Clinton and FEMA Director James Lee Witt toured various locations in Florida to view the damage and to determine what additional aid was requir ed.

Heavy Fuel Load
The first of the fires began before the Memorial Day weekend. The numbers and sizes of fires began to escalate due to near desert-like drought conditions, moderate wind speeds, numerous lightning storms and other causes. According to John W. Robertson, a fire behavior analyst and former wildland firefighter, "All of that green stuff out there is going to burn because it's full of oils, waxes and all manner of chemicals. There's lots of fuel (for the fires) to feed on. Florida's wet winter produced a bumpe r crop of shrubs and brush."

Out of state

At one point, Brenda Graham of the National Weather Service noted, "El Niño caused the wet weather, but this drying out was caused by the La Niña. The Bermuda High that usually brings rain to Florida is stuck over Texas, and it has been replaced by dry winds." Florida was enduring a "100-year drought." Most of the state's drought index was measured in the range of 500 to nearly 800. Desert dryness is measured at 800.

As the fire siege grew in size and complexity, a unified command was established between the Florida Division of Forestry, the U.S. Forest Service and the Florida Fire Chiefs Association. Local, state and federal structure protection equipment was allocat ed based on priorities and predicted fire behavior. This was reviewed and changed as needed every 24 hours. The priorities were protecting firefighter and civilian lives first, safeguarding houses and other structures second, responding to new fire outbre aks third and protecting the environment last.

Fire behavior was active to the extreme on July 2, when lives and property were threatened by hundreds of new lightning-caused fires. Flames were jumping established and hard-fought-for control lines; more than 50 homes were lost in the Palm Coast area al one, but many more houses were saved and there was no loss of life. Much can be said for training, the dedication of firefighters and expertise in the face of such adversity.

Some of the hardest hit counties were:

  • Volusia – 140,396 acres burned, 250 miles of fire lines established, 19 people injured, 27 homes and businesses destroyed or damaged.
  • St. Johns/Flagler – 94,656 acres burned, 257 miles of fire lines built, 51 homes destroyed, 175 homes damaged.
  • Orlando – 83,625 acres burned, 250 miles of fire lines in place.
  • Brevard – 71,000 acres burned, 52 reported injuries, 32 homes and three businesses destroyed.
  • Holiday – 24,621 acres burned.
  • Oakhead – 20,370 acres burned, 109 miles of fire line built.

More Facts & Figures

  • More than 7,000 firefighters from federal, state, local and volunteer agencies were working at the peak periods. Crews were dispatched from 47 states as well as Puerto Rico and Canada (in addition to the 16 from Russia). Management and support person nel numbered about 1,500.
  • The Florida Division of Forestry provided over 1,000 personnel to operations.
  • Injuries to firefighters totaled 124, all minor with one exception – a U.S. Forest Service firefighter from Alabama was hit by a falling tree while working with a tractor plow unit. He was hospitalized in critical condition, but has survived.
  • Native American Type II firefighting crews are a strong element in major wildland firefighting efforts. Seven of these elite crews from the northern Rocky Mountains were sent to Florida.
  • At least 450 engines and other brushfire trucks were in operation.
  • Dozers with and without rear plows totaled 92, including 63 from Florida; tractors totaled 33, including 23 from Florida.
  • An estimated 1,000 miles of fire line were constructed at all fires.
  • Sixty-five engines staffed by 300 firefighters from California and Oregon were flown in by Air Force C5-A transports.
  • Air support included 63 helicopters, 18 large fixed-wing air tankers and three single-engine air tankers. Other specialized equipment included three mobile weather stations, 99 radio kits, and two infrared detection aircraft for mapping the fires and locating hot spots through smoke.
  • Fire suppression costs were expected to top $133,480,000.
  • The U.S. Department of Defense provided personnel and equipment in support of operations and built fixed bridges for fire apparatus in various locations. The U.S. Army Corps of Engineers provided 565,000 pounds of ice to firefighters.
  • The number of people sheltered was well over 7,000. Evacuees from entire towns and counties totaled more than 80,000.
  • The task of reseeding, planting and rehabilitating 200,000 acres has commenced.
  • Losses to the timber industry amounted to 260,000-plus acres valued at $390 million.
  • Structures destroyed or damaged exceeded 370, with damage estimated at more than $2.6 million. Eighty-six vehicles worth over $465,000 were destroyed or damaged.
  • The fireworks industry put its losses at $6 million due to the Florida governor's order prohibiting the sale, possession or use of fireworks until the fire emergency and drought were officially at an end.

From The State Chiefs Association
The Florida Fire Chiefs Association mobilized 75 engines, 72 brushfire vehicles and 29 tankers and tenders, beyond all others mobilized by the Florida Division of Forestry and normal mutual aid.

According to Tom Harmer, chief of Titusville Fire & Emergency Services and disaster coordinator for the Florida Fire Chiefs Association, the association, in accordance with the state's Comprehensive Emergency Manage-ment Plan, is an agency for the emergen cy support function of firefighting. Its role is to provide state-requested support of local fire agencies.

During the wildland fire disaster, Harmer and the association's response team staffed the State Emergency Operations Center and coordinated the mobilization of fire-rescue resources.

"These resources were dispatched directly to local fire departments to assist with initial fire attack and structural fire protection in the wildland urban interface," Harmer said. "The association processed 147 missions and deployed more than 1,500 Flori da firefighters to assist. This was in addition to local fire departments and local mutual aid plans that were first used to support the suppression efforts." To supplement the response, the state activated the Emergency Assistance Compact (EMAC), which is an agreement signed by the governors of a number of states to facilitate assistance during major disasters.

"The EMAC resources provided an additional 551 firefighters from seven states who were deployed by the chiefs association," Harmer said. "A link was established with the state Emergency Operations Center with forestry command and the chiefs association to help facilitate coordination of resources. In addition, chiefs association liaisons were dispatched to help coordinate activities between county emergency operations centers, local fire departments and forestry operations."

The fire chiefs association's Disaster Response Plan was developed in the aftermath of Hurricane Andrew in an effort to more efficiently and effectively manage large-scale fire response deployments, he said.

"The state disaster coordinator has a network of seven regional coordinators located throughout the state and they work with 67 county coordinators," Harmer explained. " The members of this disaster team are typically fire chiefs or senior managers in fir e departments. Over 6,100 hours were provided to the members just in coordination of the statewide response to the wildfires. This activation will be closely analyzed and lessons learned will be incorporated into future revisions of the plan to help insur e that the fire service continues to find ways to be better prepared for future disasters."

"Historic Event"
Gene Madden, safety officer and spokesperson for the Florida Division Of Forestry, was assigned as the division's lead public information officer during the entire Florida fire siege. He also was assigned as his agency's representative to the White House and the Secret Service for the VIPs who toured the devastated areas. "The wildfires that occurred in Florida this year were truly an historic event in firefighting and will be written about for years to come," Madden said. "These wildfires will be to the '90s what the Yellowstone Fires were to the '80s – the signific ant wildfire event of the decade. One can make many observations about wildfire behavior. What was most striking to me was that we experienced such explosive fire intensity on so many fires across Florida for such long periods of time. It was nothing shor t of miraculous that no one lost their life to these infernos.

"A few things stand out as making significant contributions to the overall success on these fires. First, Florida has the nation's leading prescribed fire program. Certainly, without the use of prescribed fire, many of these wildfires would have been much more difficult to contain and control. Second, the aggressive and widespread use of helicopters and fixed-wing aircraft saved many structures. Third, the interagency cooperation and the use of the incident command system by and large were spectacular. Wh at a tribute to the professionalism of structural and wildland firefighters."

On The Lighter Side

  • This may be a first in wildland firefighting. A firefighter suffered a bite to his hand when he attempted to rescue an otter from fast-approaching flames. Otters possess razor-sharp teeth that can cut through leather gloves. The wound was minor and t he otter was last reported alive and frolicking in a stream.
  • Two firefighters working at a pond to set up a water-supply operation were next to a "large green log." The "log" suddenly developed a long, tooth-laden snout and two reptile-like eyes. In their panic to reach a safe location, one firefighter bumped the other one into the pond from which they were pumping. You guessed it – that "large green log" was a 12-foot-long alligator. Look out, you Northern boys!
  • Firefighters rescued a whitetail deer fawn that had some minor burns on its hooves. The firefighters named the fawn "Blaze." Move over, Smokey. Blaze may be the next national symbol for wildland fire protection.

Help From Private Groups
Many private groups and church-based organizations came to the aid of the firefighters during the operation. Some opened kitchens and fed the firefighters. Others waived payments or discounted lodging in hotels and motels. Many civilians opened their home s and hearts to the firefighters. The owners of the Indianapolis Motor Speedway donated $30,000, and the owners of the Daytona International Speedway donated their facility as a staging area and a shelter for firefighters after the July 4 race was postponed. Aqua-Med, a Largo-based manufa cturer of wound-care medications, donated $24,000 worth of spray solutions to treat injured firefighters. Florida Health Care Inc. said it would cover the costs of transporting those medications.

During and after the fire siege, there was a tremendous outpouring of thanks and appreciation shown to the firefighters by residents and businesses. Hotels and motels offered free weekends for those firefighters to return within a year. Major tourist attr actions such as Daytona USA and Daytona Opryland as well as the big theme parks and state parks announced plans to offer free or discounted passes to those who fought the fires. Residents hung posters, thanking and praising the firefighters for their eff orts. Private homes were opened up to emergency workers, where they were allowed to rest, shower and be fed. Churches also welcomed the firefighters, giving them rest and both physical and spiritual sustenance.

What Lies Ahead?
As this history-making structural wildland interzone (SWI) fire event was in the final stages of demobilization, large wildland and SWI fires were igniting in Arizona, Colorado, Georgia, Oklahoma, Oregon, Texas, Utah and elsewhere in the country. Wildland s and structures were being burned. Firefighting resources were being deployed. By the time this article is published, the numbers of fires and acres burned may exceed 10-year averages.

Will the next fire siege occur in California, New Jersey, Texas or the vast wildlands covering much of New England? History often repeats itself and nature will do its thing. Is your fire service ready to repel the invader fire? Does your community, count y, state and region have a fire disaster response plan in place? Has it been tested and upgraded recently? Are your local, state and federal fire agencies working in a cooperative effort and planning together? Is prescribed fire a part of your fire preven tion program? If your answer to any of these questions is no, then it's past time to get ready.


Thanks to the following people for their assistance in the preparation of this report: Gene Madden, spokesperson for the Florida Division of Forestry; David Olson, public information officer for the U.S. Forest Service; and Chief Tom Harmer of Titusvil le, FL, Fire and Emergency Services.
About the Author: Robert M. Winston, a Firehouse® contributing editor, is a district fire chief in the Boston Fire Department with extensive experience and training in structural wildland interzone protection. Questions and comments may be s ent to him via e-mail at dfcwins@idt.net
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