Wildfire suppression costs have increased dramatically
since 2000, currently averaging about $1.65 billion per
year. Part of this rise is because residential
development has expanded into areas that were previously
wilderness, but it also may be a consequence of changes
in weather and the accumulation of burnable wood and
grasslands created by many years of aggressive wildland
fire suppression, experts say.
The RAND study estimates the average social cost of a
large wildfire at $3.3 million. Half of the fires cost
less than $1 million and 10 percent cost more than $10
million. Fires near populated areas can be vastly more
costly than fires in isolated regions. Large aircraft
can help prevent these expensive large fires, easily
justifying their annual cost if their activities account
for the prevention of just a few large fires each year.
The RAND study focused on 1,500-gallon and 3,000-gallon
air tankers, 1,600-gallon scoopers, and 1,200-gallon and
2,700-gallon helicopters. The Forest Service asked RAND
not to include very large air tankers, like converted
747s or DC-10s, which can carry tens of thousands of
gallons of retardant. The study also excluded smaller
aircraft that carry fewer than 1,000 gallons of water or
retardant.
Historically, the Forest Service's fleet of large
firefighting aircraft has been composed primarily of air
tankers and helicopters. Air tankers primarily carry
fire retardant, which has advantages over water, but is
also much more costly. There also are environmental
concerns about the retardant. The key advantage of air
tankers is their ability to support firefighting
operations that may be far from the water sources needed
by scoopers and helicopters.
Scoopers can be used in areas where there is ready
access to large bodies of water. Although current models
cannot carry loads as large as air tankers, scoopers can
cycle back and forth between bodies of water and a fire,
making multiple drops an hour. This compares to about
1.5 drops per hour for an air tanker, which must fly
back to a runway and load more retardant before
returning to the fire.
Helicopters also have the advantage of being able to
make multiple trips in a short amount of time, and
helicopters can make precise water drops. But
helicopters have a limited range, fly slower than
scoopers or air tankers, are less effective in
mountainous areas, and cost more to acquire and maintain
than scoopers on a per-gallon-delivered basis. The
total annual capital and operating costs per aircraft
range from approximately $2.8 million for a 1,600-gallon
scooper to $7.1 million for a 3,000-gallon air tanker,
before factoring in the cost of fire retardant, Keating
said.
Helicopters can use bodies of water as small as 12 feet
in diameter. Scoopers need larger bodies of water,
generally ranging from a quarter of a mile to
eight-tenths of a mile in length, depending on obstacles
adjacent to the water. RAND researchers found that at
least two-thirds of the fires studied have been within
10 miles of a body of water that appeared to meet
scoopers' requirements, and about 80 percent of fires
have been within five miles of water bodies that would
accommodate helicopters.
The RAND report was delayed twice because the Forest
Service and RAND agreed to develop a second analysis
drawing on a Forest Service analytical tool called the
Fire Program Analysis (FPA) system. As a result, the
RAND study developed two separate, but complementary,
simulation models to evaluate the effectiveness of fleet
mix options. One is simpler and allows for better
evaluation of the influence of model assumptions, while
the other rests on Forest Service assumptions built into
Fire Program Analysis system. "While the two
models yielded different estimates of optimal fleets,
both approaches suggested a predominant role for
scoopers," Keating said. Another finding of the study
was the importance of efficient prepositioning of
aircraft to meet the next day's firefighting needs and
what the researchers termed "dispatch prescience."
When aircraft can be correctly and flexibly
prepositioned, fewer are needed. Further, if aircraft
dispatch can be optimized—that is, when they can be sent
to just those fires where they make the difference
between having a large fire or not—fewer aircraft would
be needed. The Forest Service could dramatically reduce
its aviation costs if it could increase dispatch
prescience and prepositioning accuracy. "We
think there may be an opportunity for the Forest Service
to improve its aircraft location and dispatch
algorithms, and possibly reduce aviation costs
considerably," Keating said.
The study does not recommend a specific number of
aircraft, but provides a framework for the Forest
Service to rebuild its fleet. Variables include how many
days the aircraft would spend at particular base
locations, the value of preventing certain fires and how
accurately dispatchers can determine what kind of fire
the Forest Service is facing. The range of solutions is
on the order of 15 to 30 scoopers to be used in
conjunction with two to six air tankers and a comparable
number of 2,700-gallon helicopters. The
study, "Air Attack Against Wildfires: Understanding U.S.
Forest Service Requirements for Large Aircraft," can be
found at www.rand.org. Other authors of the study are
Andrew Morral, Carter Price, Dulani Woods, Daniel
Norton, Christina Panis, Evan Saltzman and Ricardo
Sanchez.
U.S. Senators John McCain (R-AZ), Senator Bill Nelson
(D-FL), and Senator Diane Feinstein (D-CA) introduced
bipartisan legislation known as the Wildfire Suppression
Aircraft Transfer Act of 2012 that would transfer 14
excess C-27J Spartan aircraft from the Department of
Defense to the Forest Service to help replenish the
agency’s aging airtanker fleet.
The Alenia C-27J Spartan is a medium-sized
military transport aircraft. The C-27J is an advanced
derivative of Alenia Aeronautica's G.222 (C-27A Spartan
in U.S. service), with the engines and systems of the
Lockheed Martin C-130J Super Hercules. The aircraft was
selected as the Joint Cargo Aircraft (JCA) for the U.S.
military.
The United States Air Force plans to scrap the aircraft
under its Fiscal Year 2013 Force Reduction Plan, but the
Forest Service says the C-27J Spartan would become a
vital component of its overall airtanker modernization
strategy. These aircraft would provide a modern,
flexible, and extremely efficient Type 2 platform
specifically designed to operate in challenging
conditions.
“The Forest Service needs to modernize its
entire airtanker fleet,” said Senator John McCain. “We
have an opportunity to take the C-27J, an aircraft the
Pentagon no longer wants, and give it to the Forest
Service to enhance aircraft safety and lower existing
maintenance costs. The C-27J should be kept in the
service of the American people to help our brave fire
crews, rather than sit in an airplane boneyard.”
Unlike past proposals that directed the transfer of
excess military aircraft to private firefighting
contractors, the legislation introduced by Senator
McCain keeps the aircraft under Forest Service ownership
and dedicates them solely to fighting wildfires.
The bill would also reauthorize a law that
expired in 2005 that lets the Department of Defense sell
surplus aircraft parts to private companies that perform
maintenance on Forest Service aircraft.
The C-27J's duties are to be taken by the U.S. Air
Force's C-130s. In February 2012, Alenia warned that it
would not provide support for C-27Js resold by the
United States. In March 2012, it was reported that the
U.S. Coast Guard is considering taking over the aircraft
from the U.S. Air Force. On 23 March 2012, the U.S. Air
Force announced that it will cut the C-27J from its
inventory in fiscal year 2013 after determining that its
per-aircraft lifecycle costs are higher than those of
C-130 aircraft performing the same combat resupply
mission.
As of April 2012, the USAF is continuing to shut down
the program, in anticipation that Congress will support
its budget request to do so. In July 2012 the entire
fleet was grounded due to a flight control system
failure.
|