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HomeMy WebLinkAbout25-Fire Department , . CITY OF SAN BERNARDINO - REQUEST FOR COUNCIL ACTION From: Larry R. Pitzer, Fire Chief Subject: Ordinance of the City of San Bernardino amending Chapter 15.10 of the San Bernardino Municipal Code and adopting Section 15.10.090, to include the Fire Threat Zone Building and Landscaping Standards. OR\G\Nf\L Dept: Fire Date: November 20, 2003 MCtC Meeting Date: December 1, 2003 Synopsis oCPrevious Council Action: On November 18, 2003, the Legislative Review Committee directed staff to prepare a draft Urgency Ordinance for the full Council's consideration. RECOMMENDATION: That said ordinance be adopted. Contact Person: Larrv Pitzer. Fire Chief Phone: (909) 384-5286 Supporting data attached: Staff Report and Ordinance Ward: Citywide FUNDING REQUIREMENTS: Amount: $0 Source: (ACCT. No) ( Acct. Description) Finance: Council Notes: Agenda It, :WJf) . . STAFF REPORT SUBJECT Ordinance of the City of San Bernardino amending Chapter 15.10 of the San Bernardino Municipal Code and adopting Section 15.10.090, to include the Fire Threat Zone Building and Landscaping Standards. BACKGROUND The California Fire Chiefs Association Urban-Wildland Interface Committee has analyzed contributing factors associated with structure loss during the Old Fire. Subsequently, they held a series of meetings to develop recommended construction and landscaping changes in our foothill area (attachment A). The primary purpose of these changes is to reduce the potential for future conflagration with these built-in construction features. On November 18, 2003, the Fire Department attended a Legislative Review Committee (LRC) to request authorization to amend the existing Foothill Fire Zone Building Standards of the San Bernardino Municipal Code. The Committee recommended that an Urgency Ordinance be prepared for the consideration of the Mayor and Council. Amending Chapter 15.10 of the San Bernardino Municipal Code will implement a number of changes recommended by the Urban-Wildland Interface Committee. A new "Fire Threat Zone" would be established south of the Foothill Fire Zone. The new zone would follow current boundaries of the No Fireworks Zone, which is generally the area north of the 30 Freeway to the Foothill Fire Zone. This zone will be established, with specific building and landscaping requirements, to help ensure that fire will not spread from house to house as experienced during the Old Fire. The followinf! is a summary of proposed buildinf! and landscapinf! reQuirements detailed in Section 15.10.090: . Attic vents must be located in approved areas of the structure; additionally, turbine type vents would not be permitted. . "Bird stops" would be required at the open ends of roofing tiles. . Vinyl window frame assemblies would be required to meet specifications. . Eaves and soffits are to be protected. All exterior elements shall be free from exposed wood, e.g. minimum 7/8" stucco boxed in eaves. . Type of insulation and roof covering would also be regulated. . A plant list would indicate those plants that are not permitted in the "Fire Threat Zone". Palm trees, oleanders, eucalyptus trees, and junipers are examples Q{plants that would not be permitted. The Urban-Wildland Interface Committee Report of Findings indicates that these plants contributed to the transmission of fire to structures destroyed. 1 . . Most of these requirements are currently found in the Foothill Fire Zone Building Standards. Homes constructed with these built-in protections sustained much less damage, if any, during the Old Fire. Additions or rebuilt portions of existing structures in the new Fire Threat Zone would be subject to these requirements as detailed in existing Foothill Fire Zone requirements. LRC discussed issues regarding citywide application of the proposed ordinance, as well as removing existing nonconforming plants from rebuild lots. A team of City staff will explore this, and other larger-scale, fire related issues in the coming months and bring back recommendations to the LRC. In the attached Ordinance, there have been minor changes, as indicated in italics and underlined, to clarify language in certain code sections. FINANCIAL IMPACT There is no financial impact to the City of San Bernardino. RECOMMENDATION That said ordinance be adopted. 2 !2 .. ..l ~ " ".i ;... , i .r--""I ,-. ru....i I TlpdL"CANO "1::.., i ....... ... ~ i: :; ARROWILEA MT ERNO"" '" ~ ... J i: :2 '" ~ ~ .. .. 7- '" o '-' o n____, r ~. .~ /: .' ! MERlO' ~ i__...... f U ACACIA SYCA.'\IOR RIVERSIDE WI ACTUS .. o 7- .. :< >= '" 1 ,:"~j ! ! .i . , ALABAMA j ! 1 'I f' !. 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Rancho Cucamonga, CA 91730 http://www.socafpo.org DATE: November 14, 2003 TO: Larry Pitzer, Fire Chief Doug Dupree, Fire Marshal City of San Bernardino Fire Department FROM: Urban-Wildland Interface Committee SUBJECT: Old Fire, October 25 - November 5, 2003 During the recent "Southern California Wildfire Siege", all areas of Southern California felt the impact of the fires, with the City of San Bernardino receiving one of the most significant blows. The wind-driven "Old" Fire began on the morning of Saturday, October 25,2003, and proceeded to bum over 91,000 acres and destroyed or damaged 1038 structures before being contained on November 5. 336 homes were lost or damaged within the boundaries of San Bernardino - the majority of which were located in the north Del Rosa area. The Urban-Wildland Interface Committee is extremely saddened to see the havoc wreaked by the Old Fire on your city. The losses to private and public properties are enormous, and will have many long- as well as short- term effects. As devastating as the fire was, however, it also provides us an opportunity to observe and learn from what worked and didn't work in the neighborhoods and areas that experienced the high structure losses. We appreciate the opportunity to work with you in surveying and inspecting the damaged areas, and for your support in providing maps and damage data for your city. The attached report of findings, contributing factors and corresponding recommendations are based upon this work. Prepared by: ~~~ Rolland M. Crawford Co-Chair Urban-Wildland Interface Committee ft~~ Leonard Temby Committee Member Urban-Wildland Interface Committee J 2-ct . 11-/ '/03 INITIAL REPORT OF FINDINGS AND RECOMMENDATIONS For the DISASTER WITHIN THE CITY OF SAN BERNARDINO CAUSED BY THE EFFECTS OF THE OLD FIRE, 2003 Introduction The "Old" Fire (taken from "Old Waterman") began on the morning of Saturday, October 25, 2003, and proceeded to burn a total of9l,281 acres and destroyed or damaged 1038 structures before being 100% contained on November 5 (993 homes destroyed, 35 homes damaged, 10 commercial structures destroyed). 336 structures were lost or damaged within San Bernardino - the majority of which were located in the north Del Rosa area. Fire response costs to date exceed $42,500,000. Members of the UWI Committee, principally the authors of this document, have made several surveys of the affected areas, conducted interviews with residents and responding firefighters, along with analysis of fire loss maps and loss/damage data and photographs taken during the initial attack phase of the fire. We have performed inspections of individual properties that were either not damaged, or minimally damaged, while numerous surrounding structures were destroyed or severely damaged. The following findings and corresponding recommendations are based upon this work. Findings 1. Wind-driven fire. The fire front that entered the Del Rosa area has been described as "like a wave of flame coming down off the hills" onto the structures situated at the north end of Quail Canyon Road. The winds driving the fire have also been described as very erratic, changing direction and intensity on a frequent basis. In some instances, structures at the true wildland fuels interface area were hit with direct flame impingement, while others were subjected to considerable amounts of wind-carried burning debris. 2. Transmission of fire. The fire that swept down offthe foothills into the built-up areas was propagated to structures by a combination of factors. These included direct flame impingement, ignition of trees allowed too close to structures (e.g., limbs overhanging roofs and eaves), tree-to-tree flame propagation, flying brands and embers, structure-to-structure flame spread (due to proximity of exterior walls, radiant heat transfer), ignition of combustible fencing and auxiliary structures, ignition of ornamental landscape vegetation (with propagation into structures when planted too close to the structure). Large quantities of flying embers and brands were generated; in many cases these carried considerable distances - a very significant factor. 3. Structure losses. The fire experience in San Bernardino was a combination of a true interface fire plus an urban conflagration. This was due to a) Direct flame impingement, b) Burning ember intrusion into attic spaces, usually via vents, c) Entrapment of burning materials under roof assemblies. itzz \?-II/07 Major Contributing Factors . Structure ignition caused by wind-blown firebrands and embers landing in or under roofing materials, or through entry into attic spaces through vents or other means. Vent placement appears to be a primary concern (i.e., where placed on the structure in relationship to wildland areas). Another concern is the entry of burning embers into attics through rooftop-mounted turbine vents. . Omamentallandscape vegetation providing a ready path for flame propagation into structures, and/or causing production of significant of flying embers and brands. . Ignition of combustible materials in and around yards, such as wooden fences, overgrown vegetation, storage, woodpiles, etc. These materials often provided a source of ignition to the adjacent home. . Extremely restricted roadway access in certain areas, especially in and around Quail Canyon. . Structure-to-structure fire propagation caused by direct flame impingement or radiant heat due to close proximity of houses. Recommendations I. Increase the boundaries of the designated Hazardous Fire Area (Foothill Fire Zone), and implement an additional buffer or threat zone further south into the existing built- up neighborhoods and areas. 2. Consider adoption of the International Urban- Wildland Interface Code, or at least certain key provisions, as a minimum. For example, see Chapters 4, 5, 6, and Appendices B and F, included in Attachment I. 3. Limit vegetative fuels. As part of the Building Permit process for new developments or projects, require submittal of a landscaping plan, specifically considering species selection, plant placement (in relationship to structures and other plants), and on- going maintenance. Prepare guidelines for use by new and existing homeowners and landscape designers, especially noting plant species that should not be used due to their readily ignitable nature (high oil or resin content, production of significant amounts of dead material or debris, etc.), plant placernent in relation to other landscaping materials and residential structures, and on-going landscape maintenance considerations. 4. Establish interface fuel modification zones. Implementation of a fuel break along the north perimeter of the built-up area, adjacent to the vegetated wildland areas. 5. Adopt additional building design and construction standards specifically regulating placement of attic vents on the side( s) away from the wildland area, provide adequate stopping for open ends of roof covering materials (e.g., "bird stops" at the open ends of roofing tiles). For example, see text included in Attachment 2. :U- ;L <b {'2..( I ( 03 1 2 ORDINANCE NO. 3 ORDINANCE OF THE CITY OF SAN BERNARDINO AMENDING CHAPTER 15.10 OF THE SAN BERNARDINO MUNICIPAL CODE AND ADOPTING SECTION 15.10.090, TO INCLUDE THE FIRE THREAT ZONE BUILDING AND LANDSCAPING STANDARDS. 4 5 THE MAYOR AND COMMON COUNCIL OF THE CITY OF SAN BERNARDINO ORDAIN AS FOLLOWS: 6 Chapter 15.10 7 8 Foothill Fire Zone and Fire Threat Zone Building Standards 9 Sections: 15.10.090 Fire Threat Zone Buildinl! Standards. 10 15.10.040 Scope. 11 A. New Structures 12 13 The requirements of this Chapter shall apply to all newly constructed buildings, structures, or appurtenances located in the Foothill Fire Zones and the Fire Threat Zone. 14 15.10.060 Applicability. 15 The requirements of this Chapter shall be applicable to those properties located in Foothill Fire Zones A, B, or C as defined in Chapter 19.15 and the Fire Threat Zone as defined in Chapter 8.60.010. (Ord. MC-960, 3-4-96) 16 17 15.10.090 Fire Threat Zone Building and Landscaping Standards. 18 All exterior elements, including, but not limited to eaves, overhangs, garage doors, fascias, etc., shall be free from exposed wood (e.g. minimum 7/8" stucco protection) except as noted in Exterior Walls, I and 2. A. 19 20 Exterior walls. Exterior walls of all buildings or structures shall comply with the provisions 21 of the Building Code and with the following additional requirements: 22 23 1. Exterior walls. Except when constructed of non-combustible materials exterior walls shall provide the equivalent to a minimum of I-hour fire-resistance-rated construction on the exterior side. This may be accomplished by providing an underlayment of Y:,- inch fire-rated gypsum sheathing that is tightly butted or taped and mudded, placed under 3/8-inch plywood or 3/4-inch drop siding, or an approved alternate. 24 25 26 Projections. Exterior balconies, carports, decks, patio covers. unendn<p,1 rnn.. n_~ floors, and similar architectural appendages and proj combustible construction or one-hour fire-resistive com When such appendages and projections are attached to t they shall be constructed to maintain the fire-resistive inte! 1 27 #::zr / J-/t 103 28 19 20 21 22 23 24 1 2 B. Exterior glazing. Exterior glazing shall comply with the provisions of the Building Code and with the following additional requirements: 1. Exterior windows, window walls and glazed doors, and windows within exterior doors, shall be tempered glass, multi-layered glass panels (dual- or triple-paned), or other assemblies approved by the Building Official. 2. Vinyl window frame assemblies shall be prohibited, except when they have the following characteristics: 3 4 5 6 7 Frame and sash are comprised of vinyl material with welded corners; Metal reinforcement in the interlock area; Glazed with insulating glass, annealed or tempered; Frame and sash profiles are certified in AAMA Lineal Certification Program (verified with either an AAMA product label or Certified Products Directory); and Certified and labeled to ANSI/AAMA/NWWDA 101lI.S.2-97 for structural requirements. Skylights shall be tempered glass, except when the structure is protected with an automatic fire sprinkler system; the building Official may approve other materials. 8 a) b) c) d) 9 10 e) 11 3. 12 13 C. 14 Vents. Vents shall comply with the provisions of the Building Code and with the following additional requirements: 1. No attic ventilation openings or ventilation louv~s shall be permitted in soffits, in eave overhangs, between rafters at eaves, or in other overhanging areas. Attic or foundation ventilation openings or ventilation openings in vertical walls shall face away from the Foothi\l Fire Zone (i.e., on sides not facing natural vegetation, brush, or forest-covered lands). Attic vents facing side yards shall be located at least 15' from the property line or placed on the front or rear of the roof structure, and shall be covered with ll4-inch mesh corrosion-resistant metal screen or other approved material that offers equivalent protection. EXCEPTION: When allowed by the Building Official, to meet Building Code venting requirements, enclosed/boxed eaves may be vented on the underside of the eave closest to the fascia provided the closest edge of the vent opening is at least 12 inches from the exterior wall. This venting must be screened or have holes less than v.. inch in diameter. Roof-mounted turbine vents shall not be permitted. 15 16 17 18 2. D. Insulation. Paper-faced insulation shall be prohibited in attics or ventilated spaces. 25 E. Roof covering. All roof covering shall be of non-wood materials with at least a Class A or B fire-retardant rating. The open ends of high-profile tile roofs shall be capped with non- ignitable material to prevent birds' nests or other combustible material from accumulating. Gutters and downspouts shall be constructed of non-combustible material. 26 27 28 2 I F. Landscaping Requirements. The following plants are not permitted to be planted in the Fire Threat Zone: Eucalyptus, Oleander, Palms, Junipers, Cypress, Olive Trees, and Arborvitae. 2 3 G. Fire Protection Plan. A Fire Protection Plan shall be required for all new developments or major building projects within the Fire Threat Zone. A landscaping plan shall be included as a component ofthe Fire Protection Plan, as required by the Chief. 4 5 I-~-- I . .. 1 ORDINANCE OF THE CITY OF SAN BERNARDINO AMENDING CHAPTER 15.10 OF THE SAN BERNARDINO MUNICIPAL CODE AND ADOPTING SECTION 15.10.090, TO 2 INCLUDE THE FIRE THREAT ZONE BUILDING AND LANDSCAPING STANDARDS. 3 4 I HEREBY CERTIFY that the foregoing resolution was duly adopted by the Mayor and 5 Common Council of the City of San Bernardino at a meeting thereof, held on the 6 day of , 2003, by the following vote, to wit: 7 8 Council Members: AYES ABST AlN ABSENT NAYS 9 ESTRADA LONGVILLE 10 11 McGINNIS 12 DERRY 13 SUAREZ 14 ANDERSON 15 McCAMMACK 16 17 Rachel G. Clark, City Clerk 18 19 The foregoing resolution is hereby approved this day of 20 21 ,2003. 22 Judith Valles, Mayor City of San Bernardino 23 24 Approved as to form and legal content: 25 James F. Penman 26 City Attorney 27 28 By: 4 Penni Overstreet-Murphy Preskfent Laura Blaul 1. Vice Pres/dent Kal'Y.n Vauel'euil t'" Vice Preskfent Kevin Scott Treasurer Jim Deleon Secretery Ken Qulck Director of OperaUons scott Corrin Webmsster Tom Oakes Judge Advocate Phil Garcia CFCA Ua/son Chief Attachment "A" California Fire Chiefs Association Fire Prevention Officers Section . Southern Division 10808 Foothill Blvd PMB 451 . Rancho Cucamonga, CA 91730 hllp://www.socafpo.org DATE: November 14, 2003 TO: Larry Pitzer, Fire Chief Doug Dupree, Fire Marshal City of San Bernardino Fire Department FROM: Urban-Wildland Interface Committee SUBJECT: Old Fire, October 25 - November xx, 2003 During the recent "Southern California Wildfire Siege", all areas of Southern California felt the impact of the fires, with the City of San Bernardino receiving one of the most significant blows. The wind-driven "Old" Fire began on the morning of Saturday, October 25,2003, and proceeded to burn over 91,000 acres and destroyed or damaged xxx structures before being contained on November xx. 336 homes were lost or damaged within the boundaries of San Bernardino - the majority of which were located in the north Del Rosa area. The Urban-Wildland Interface Committee is extremely saddened to see the havoc wreaked by the Old Fire on your city. The losses to private and public properties are enormous, and will have many long- as well as short- term effects. As devastating as the fire was, however, it also provides us an opportunity to observe and learn from what wolked and didn't work in the neighborhoods and areas that experienced the high structure losses. We appreciate the opportunity to work with you in surveying and inspecting the damaged areas, and for your support in providing maps and damage data for your city. The attached report of findings, contributing factors and corresponding recommendations are based upon this work. Prepared by: Rolland M. Crawford Co-Chair Urban-Wildland Interface Committee Leonard Temby Committee Member Urban-Wildland Interface Committee Oi?/tPJ INITIAL REPORT OF FINDINGS AND RECOMMENDATIONS For the DISASTER WITHIN THE CITY OF SAN BERNARDINO CAUSED BY THE EFFECTS OF THE OLD FIRE, 2003 Introduction The "Old" Fire (taken from "Old Waterman") began on the morning of Saturday, October 25,2003, and proceeded to bum a total of91,281 acres and destroyed or damaged xxx structures before being contained on November xx. xxx structures were lost or damaged within San Bernardino - the majority of which were located in the north Del Rosa area. Fire response costs to date exceed $42,000,000. Members of the UWI Committee, principally the authors ofthis document, have made several surveys of the affected areas, conducted interviews with residents and responding firefighters, along with analysis of fire loss maps and loss/damage data and photographs taken during the initial attack phase of the fire. We have performed inspections of individual properties that were either not damaged, or minimally damaged, while numerous surrounding structures were destroyed or severely damaged. The following findings and corresponding recommendations are based upon this work. Findings 1. Wind-driven fire. The fire front that entered the Del Rosa area has been described as "like a wave of flame coming down off the hills" onto the structures situated at the north end of Quail Canyon Road. The winds driving the fire have also been described as very erratic, changing direction and intensity on a frequent basis. In some instances, structures at the true wildland fuels interface area were hit with direct flame impingement, while others were subjected to considerable amounts of wind-carried burning debris. 2. Transmission offire. Direct flame impingement, Ornamental vegetation too close to structures (e.g., limbs overhanging roofs and eaves), tree-to-tree propagation, flying brands and embers, structure-to-structure propagation (proximity of exterior walls, radiant heat transfer), ignition of combustible fencing and auxiliary structures, ignition of ornamental landscape vegetation (with propagation into structures). Large quantities of flying embers and brands were generated; in many cases carried considerable distances. 3. Structure losses. Had a combination of true interface fire and an urban conflagration. This was due to a) Direct flame impingement, b) Burning ember intrusion into attic spaces, usually via vents, c) Entrapment of burning materials under roof assemblies. Major Contributing Factors . Structure ignition caused by wind-blown firebrands and embers landing in or under roofing materials, or through entry into attic spaces. Vent placement appears to be a primary concern. . Ornamental landscape vegetation providing a ready path for flame propagation into structures, and/or causing production of significant of flying embers and brands. . Ignition of combustible materials in and around yards, such as wooden fences, overgrown vegetation, storage, woodpiles, etc. These materials often provided a source of ignition to the adjacent home. . Extremely restricted roadway access in certain areas, especially in and around Quail Canyon. . Structure-to-structure fire propagation caused by direct flame impingement or radiant heat. Recommendations 1. Increase boundaries of the designated Hazardous Fire Area. 2. Consider adoption ofthe International Urban-Wildland Interface Code, or at least certain key provisions, asa minimum. 3. Limit vegetative fuels. As part of the Building Perm;' process, require submittal of a landscaping plan, specifically considering species selection, plant placement (in relationship to structures and other plants), and on-going maintenance. 4. Establish interface fuel modification zones. Implementation of a shaded fuel break along the north perimeter of the built-up area, adjacent to the vegetated wildland areas. 5. Adopt additional building design and construction standards specifically regulating placement of attic vents on the side(s) away from the wildland area, provide adequate stopping for open ends of roof covering materials (e.g., "bird stops" at the open ends of roofing tiles).