GEOG 588

Term Project

Proposal for Developing

F.L.A.M.E.S.,
a Real-Time Geospatial
System for Wildfire
Emergencies

by
Susan T. Williams
October 2013

Table of Contents

I. Abstract................................................................................................................. 3
II. Introduction.......................................................................................................... 3
III. Needs Assessment.............................................................................................. 8
IV. System Architecture......................................................................................... 11
V. Prototyping................ 12
VI. Implementation................................................................................................. 13
VII. Scalability.... 14
VIII. Maintenance................................................................................................... 14
IX. Conclusion.................................................................................................... 14
X. References...................................................................................................... 15

I. Abstract
The project presents a general design proposal for a GIS system based on lessons learned from
the September 2011 Bastrop County Complex wildfire in Texas. First, the report will discuss
lessons learned from research on the fire and its impacts. Those lessons, combined with recent
technological and social trends in GIS and emergency management, will be incorporated into a
design for a user-friendly GIS to aid emergency managers and citizens in future crises. The
interactive program will be easily scalable to any area that may be interested in participating, and
it is designed to take into account road networks, topography, land use and ownership,
vegetation, and hydrology of the area. This proposal includes a needs assessment, description of
potential users, system architecture, implementation and maintenance plan, and an outline of
expected benefits. Many potential users would find this system useful. Local residents could
determine the risk level of their property prior to a wildfire, access information about how to
reduce that risk level, avoid hazardous routes when evacuating, and navigate post-emergency
insurance remediation with greater speed and less stress; insurance companies could make more
accurate assessments regarding insurance needs of each property parcel; regional planners could
access the data to determine future projects such as developments and zoning, parks, or road
networks; emergency managers could quickly triage to determine areas in greatest need and
negotiate bureaucratic processes more efficiently when seeking federal disaster aid. The
implementation of this technology has potential to save lives and property, reduce the burden on
emergency managers, and help direct precious planning dollars to effective outlets.

II. Introduction
Brief Background
The 2011 Bastrop County Complex wildfire, one of the most destructive in Texas history, topped
$400 million in lost property (Badger, 2012) and set a record for most homes
destroyed by a single wildfire (1,660) (Texas Forest Service, 2012). The fire raged
for over a month, burning 34,069 acres, killing two civilians and injuring three
firefighters (Badger, 2012).
The fire began September 4, 2011, when high winds toppled trees onto power lines, sparking dry
grass and brush in a vacant Bastrop lot. At the time, the state was in a severe drought and
weather conditions included a 98-degree temperature, 45+ mph winds, and 12% relative
humidity (ibid).
An estimated 10 million Texans, approximately 41% of the states population, live in the
Wildland Urban Interface (WUI) (Texas Forest Service, 2012), where homes are built near or
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among fire-prone lands (International Association of Fire Chiefs, n.d.) This presents additional
challenges as increased distance to emergency services results in fewer resources and longer
response times (Texas Forest Service, 2012). Furthermore, fire departments may not have
enough resources to protect every threatened residence and must triage to determine which
homes can be protected (ibid).

Figure 1: Smoke billows from the Bastrop County Complex wildfire in Texas on
September 5, 2011. Wendy Moore / CNN. Used here for educational purposes
only.

Lessons Learned
Although many homes and two lives were lost, many homes and lives were saved. The Bastrop
Fire Chief attributed success to mandatory training and experience, including developing a
Community Wildfire Protection Plan and ensuring up-to-date equipment. Success is also
attributed to homeowners who took defensive actions in advance (Texas Forest Service, 2012).
Experts agree that many homes that survived had something in common: gutters and foundations
were cleared of anything combustible (McDonald, 2012). Although 30 feet of defensible
space has long been recommended in Texas, research from the fire indicates that perimeter
should be greatly extended, perhaps similar to California laws requiring 100 feet of defensible
space (Gandara, 2012). LIDAR or other high-resolution imagery could assist in identifying areas
most in need of this remediation.
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Additional recommendations from research includes:

Adding metal screens over vent openings to prevent sparks from entering the home.
Keeping combustible materials (leaves, pine needles) cleared from the roof and gutters.
Using ignition-resistant roofing materials, siding, metal gutters, gutter guards.
Removing or isolating highly flammable plants and dead/dying plants; keeping vegetation
watered and shrubs small.
Using rock or stone instead of mulch to create a foundation buffer.
(Ridenour, Rissel, Powell, Gray, Fisher & Sommerfield, 2012)
Analysis also revealed that emergency management efforts were complicated by red tape.
U.S. Rep. Michael McCaul accused federal government of taking almost a week to assist
because potential assets nearby were tied up in red tape, such as a DC-10 airplane specially
equipped to drop fire retardant but sat grounded instead (Ward, 2011).
Rep. McCaul addressed a bureaucratic maze of paperwork that responders must file to obtain
cost reimbursement as allowed by federal law, indicating that the process sometimes takes three
years. This may be an area of opportunity for volunteer communities seeking to assist. By
taking on paperwork normally handled by responders, community volunteers will free
responders to focus exclusively on acute emergency management tasks.
Purpose and End Goals of the Proposed F.L.A.M.ES. GIS Application
One challenge in emergencies is lack of reliable real-time geospatial data available to citizens
who may be in harms way and are unaware of danger or need the quickest route to safety.
Furthermore, cell phones have been found very useful in disasters when used to interact and
network people and serve as a platform for emergent behaviors during disaster response (Palmer
et al., 2012). This proposal recommends a plan to design, evaluate, implement and maintain
F.L.A.M.E.S. Fire Location And Management Emergency System, a real-time system to aid
users in all phases of Wildfire Management. For mitigation, FLAMES can help users determine
risk in advance and connect users with recommendations to reduce risk, as well as identify
specific high-risk communities for mitigation projects For preparedness, the system can track
and display danger areas, alert users located in or near a wildfire, and present evacuation routes.
For response, the system can assist responders in logging events, generating and submitting aid
and reimbursement requests based on logged events, and provide a communal message board for
users to post their status for loved ones seeking information. For recovery, FLAMES can assist
homeowners in contacting insurance companies and streamline remediation processes by
identifying residences located within damaged areas.

Overview of the F.L.A.M.E.S. GIS Application

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F.L.A.M.E.S. is an app for both mobile and desktop devices to help users reduce wildfire risk
and navigate away from wildfire emergencies. Research from the 2011 Bastrop Complex fire
indicates that many homes that survived had common denominators, and homeowners can
greatly reduce risk by taking specific actions. However, many homeowners are unaware of this.
The FLAMES system will run an algorithm on a residents home (based on factors such as
vegetation type and density, structure materials, distance to emergency services, etc) to determine
risk ratings, then present specific actions a homeowner can take to reduce risk. Simulated
demos can show how each action will affect the overall risk rating.

Figure 2: A sample Risk Rating that can

determine a residents specific wildfire risk
based on various factors. Information is also
provided to educate the homeowner on how
to reduce that risk.
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During an active wildfire emergency, alerts can be pushed to

users located within a certain range and guide them to the best
evacuation route.

Figure 3: A sample FLAMES Alert which can be sent

to a mobile phone, tablet, or computer. The
interactive app can be easily accessed to provide
more information on how to quickly evacuate and
help users navigate the safest evacuation route.

The app can be linked to current weather conditions to help monitor

hazardous conditions in real-time.
Analysis demonstrated that humans in an affected area are capable of
providing enormous response potential to aid emergency efforts,
particularly given mobile technology, which makes them ideal active
sensors to emergent situation awareness (Gunawan et al., 2012).
Therefore, similar to the 311 interface intended to enhance
community engagement and route requests to proper agencies, this
system will have Volunteered Geographic Information (VGI)
capabilities. Users can contribute VGI by quickly inputting basic
notes to request aid and report the status of people or buildings.
Comments will be noted with GPS coordinates and any uploaded
photos or videos. These areas will be marked for users, who can click
on the area to access information contributed about that location.

Figure 4: A sample VGI submission that will help

monitor conditions, guide responders, and inform
citizens and media.

A basic People Finder component such as the one suggested by Palmer et. al (2012) would
enable citizens to post or obtain data on loved ones who may be in harms way.
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Figure 5: Example of a possible

People Finder VGI interface on a
mobile device.
Image from Palmer et al., 2012.
Used here for educational purposes

Regional planners and emergency management officials can use the app to target high-risk areas
for mitigation projects as well as help cut through red tape by generating and submitting requests
for aid and reimbursement. Decisions and response activities can be recorded, thus tracking and
validating the actions and process of management and serving as an immediate log (Ma et al.,
2013).

III. Needs Assessment

General Design Process
The design process begins with a Needs Assessment, which will consider groups of potential
users and create personas and scenarios for each group to determine system requirements and
optimal design specifications. These specifications will take into account the hardware and
software components as well as possible constraints. The next step is creating prototypes and
obtaining evaluation and feedback before selecting a final design for implementation.

Figure 6: General Design

Process
Image from IPE Global

Potential Users and How They Will Benefit

Although this proposed system is intended to mainly aid residents, there are four categories of
potential users who may benefit:
1. Local Residents. Residents can determine wildfire risk of their residence or business
and connect with resources to educate about reducing risk; access the status of wildfires;
find best evacuation routes; receive alerts when nearing affected areas; submit volunteer
data and post to a communal message board; and access streamlined procedures for
contacting insurance companies. This group will likely use a variety of platforms to
access the system, including laptops, smartphones, and tablets.
2. Decision Makers. Decision makers can access the data real-time and archived for
analysis to determine projects such as potential locations for future fire stations,
alternative roadways into specific areas, and areas in need of controlled burns or other
mitigation measures. This group may access the system from any platform, but are most
likely to use desktop and laptop computers with larger screens to aid analysis and
decision-making.
3. Emergency Responders. The reduction of citizens and residences in harms way will
reduce the need for emergency crews to endanger their own lives while performing a
rescue. Real-time data can enhance decision-making regarding which areas need focused
rescue efforts. This group may access the system from any platform, but are most likely
to use smartphones and tablets for greatest mobility.
4. Television and Radio Media. Media can utilize the data when reporting conditions to
the public, further educating residents on dangers and potentially saving lives while
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spreading word about the systems existence to attract additional users. This group will
likely use a variety of platforms to access the system depending on whether they are
reporting from the field or the studio.
Create User Personas
Personas will be created for each potential User Group to focus attention on target groups that
the application is being designed for. This method does not cover every possible user, but does
help focus sequentially on different types of users (Grudin and Pruitt, 2003).
The following is an example of a possible Persona for the Resident User Group:
Russell has been a resident of Bastrop County in central Texas since he retired in 2009.
His home, built in 2004, is constructed of typical materials for the Tahitian Village area
and includes a deck on a wooded lot on Kohala Lane. He maintains 30 feet of defensible
space around his home but does not know what else can reduce his wildfire risk. Russell
has searched the internet for data but felt overwhelmed with conflicting information.
Create Scenarios
Scenarios will be created for each Persona, describing how users will accomplish various
activities, to aid in developing a geospatial system that will enable these scenario-based
experiences (Rosson and Carroll, 2002).
The following is an example of a possible Scenario for the previous Persona:
On a hot August Tuesday, Russell returns home from a day at the Pine Forest Golf Club
in Bastrop with friends. He is preparing dinner with
his wife when his smartphone beeps to signal a special
Alert. A F.L.A.M.E.S. message informs him that a
wildfire has started along Mauna Loa Lane and he
should immediately evacuate, along with a brief
evacuation checklist that guides Russell through
necessary steps to secure pets and retrieve important
documents in mere minutes. Russell selects Find
Safest Evacuation Route and the app directs him to
take Kona Drive to Tahitian Drive to avoid the hazard
area.

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Figure 7: A sample FLAMES Evacuation Route that

will guide user Russell out of the hazard area.

Identify System Requirements

Analysis of Personas and Scenarios will determine necessary System Requirements. Cloud
scaling will provide greatest flexibility. Each user or organization is responsible for obtaining
their desired access device (e.g., desktop, laptop, tablet, smartphone). Software components will
be needed, including Responsive Design principles that construct the application for mobile
devices and computers, as well as geofencing capabilities to push alerts to users. These alerts
will be formulated according to best practices that account for content structure, delivery mode
and style to maximize influence on recipients (Mulero-Chazes and Parraga-Niebla, 2013).
Constraints
Ease of use is a critical component to any emergency system. All four potential user groups want
a user-friendly tool that is quick and easy to understand.
Cost is another important factor, as most user groups have very limited funding. While the
application will be delivered on existing equipment likely already in a users possession (e.g.,
mobile phone) the cost to design the application must be accounted for. Responsive Design
principles will reduce the cost of designing for multiple platforms and Cloud computing will
reduce the cost of system architecture and maintenance. Utilization of existing standardized base
data can also reduce cost.

IV. System Architecture

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The application will be accessible from any desktop, laptop, smartphone, or tablet with internet
access for real-time updates. Utilizing Cloud computing allows the system architecture greater
scalability and reduced maintenance (Robinson, 2014). The specific design of early-warning
system architecture will be evaluated through scientific studies and literature reviews that
address needs such as a scalable and resilient communication layer that supports synchronous
communication and information exchange on multiple platforms and networks (Mograber et al.,
2013). A similar review will evaluate best dialogue and design principles for interpreting
usability standards and guidelines in emergency services when imposed on mobile devices
(Mentler and Herczeg, 2013).
Hardware Components
Additional hardware needs may be determined during a detailed Needs Assessment. At present,
the following are deemed necessary:
(1) mobile devices or computers for access these are the responsibility of individual
users; acquisition and maintenance is not part of the F.L.A.M.E.S. system
(2) internet access for real-time updates. Although broadband access is desired for more
rapid real-time updates, the system will be designed to function adequately on slower
connections to ensure accessibility from all areas.
(3) archival/database capability
Software Components
Additional software needs may be determined during a detailed Needs Assessment. At present,
the following are deemed necessary:
(1) Responsive Design to create an interactive app for mobile devices and webmap for
desktop/laptop computers
(2) algorithmic program that calculates wildfire risk based on existing conditions
(3) geofencing capabilities
(4) programming to run simulated demos
Data Collection
A detailed Needs Assessment will further determine which data already exists and which should
be collected. At present, the following is deemed necessary:
(1) topography basemap
(2) hydrology
(3) roads
(4) land use and ownership
(5) locations and footprints of structures (homes, businesses, etc)
(6) vegetation (type, density)
(7) weather elements (relative humidity, temperature, precipitation/drought conditions
and drying of fuels, wind direction and speed)
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(8) existing red flag fire warnings and county burn bans
(9) location of emergency services
(10) reputable data on best management practices for homeowners

V. Prototyping
Prototyping will aid in actualizing design goals determined during Needs Assessment (Robinson,
Hardisty, and Chaplin, 2012). Groups providing feedback will vary in size but will ideally
include city, county, and state levels.
Early Prototyping
Paper prototypes are a cost-efficient and effective method for initial modeling (ibid). Several
paper prototypes, such as card sorting, sketches, or bubble diagrams, will be developed and
shared to elicit feedback for further design. This phase may need to be repeated based on
feedback.
Advanced Prototyping
Once feedback is received and analysis conducted from early prototyping efforts, advanced
prototyping will occur. Depending on budget constraints, this may be as simple as a digital
mockup or as complex as electronic simulations.
Once this advanced prototype is evaluated and adjusted accordingly, a detailed cost estimate
regarding final system design should be developed before attempting to obtain project
stakeholder approval. The application itself will be free for all users.

VI. Implementation
Once a design is finalized and approved, implementation can begin. Responsive Design allows
the webmap interface and mobile app to be introduced together. Deployment at local universities
and research institutes can stress-test the system in scenario-driven simulations.
The project sponsor should institute a project manager to oversee implementation and determine
a project schedule in partnership with any vendor(s) and other organization(s) involved.

VII. Scalability

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Data formats must be standardized for scalability. States desiring to participate need to obtain
hydrology, road and other area data in a uniform format, such as State Plane Coordinate System,
or utilize standardized base data that already exists for the nation. Cloud computing will enable
scalability more or less on demand (Robinson, 2014).

VIII. Maintenance
Although maintenance needs should be relatively few, the project sponsor and project manager
should determine who is responsible for maintenance on the system and on what timetable.

IX. Conclusion
The F.L.A.M.E.S. GIS system addresses the public safety issue of Texas high wildfire risk.
The interactive, user-friendly application will benefit five different user groups by providing
real-time geospatial data that saves lives and money by enabling users to safely navigate
hazardous areas, reducing need for emergency crews to intervene in evacuating residents and
directing crews to most-needed sites, and help regional planners prioritize future projects.

X. References

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Badger, Stephen G. (2012) National Fire Protection Association (NFPA) Journal, November /
December 2012 issue. Retrieved September 2013 at
http://www.nfpa.org/newsandpublications/nfpa-journal/2012/november-december2012/features/2011-large-loss-fires
Gandara, Ricardo (July 26, 2012) Bastrop County wildfire report: Bigger buffer could save
homes. Austin American-Statesman.
http://www.statesman.com/news/news/local/bastrop-county-wildfire-report-biggerbuffer-cou-1/nRqPS/
Grudin, Jonathan and Pruitt, John. (2003) Personas, Participatory Design and Product
Development: An Infrastructure for Engagement. Retrieved September 2013 from
https://www.e-education.psu.edu/drupal6/sites/www.eeducation.psu.edu.geog583/files/personas.pdf
Gunawan, L. T., Fitrianie, S., Brinkman, W. P., & Neerincx, M. (2012). Utilizing the Potential of
the Affected Population and Prevalent Mobile Technology during Disaster Response:
Propositions from the Literature. Proc. of the Information Systems for Crisis Response and
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http://www.iscramlive.org/ISCRAM2012/proceedings/206.pdf
International Association of Fire Chiefs (IAFC) (n.d.) Ready, Set, Go! Program: What Is the
Wildland Urban Interface? Retrieved September 2013 from
http://www.wildlandfirersg.org/Learn/content.cfm?ItemNumber=646
IPE Global [Graphic of Design Process]. Retrieved September 2013 from
http://www.ipeglobal.com/information_technology.php
Ma, Y., Yuan, S., Zhang, H., & Liu, Y. Framework Design for Operational Scenario-based
Emergency Response System. Proc. of the Information Systems for Crisis Response and
Management (ISCRAM). Retrieved October 2013 from
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McDonald, Colin. (September 1, 2012) Hard lessons learned from Bastrop fire. San Antonio
Express News. http://www.mysanantonio.com/news/environment/article/Hard-lessons-learnedfrom-Bastrop-fire-3834316.php
Mentler, T., & Herczeg, M. (2013) Applying ISO 9241-110 Dialogue Principles to Tablet
Applications in Emergency Medical Services. Proc. of the Information Systems for Crisis
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Moore, Wendy [Photo of Bastrop County Complex Wildfire]. Retrieved September 2013 from
http://www.desdemonadespair.net/2011/12/50-doomiest-images-of-2011.html
Mograber, J., Chaves, F., Middleton, S., Zlatev, Z., & Tao, R. (2013). The Seven Main
Challenges of an Early Warning System Architecture. Proc. of the Information Systems for
Crisis Response and Management (ISCRAM). Retrieved October 2013 from
http://www.iscramlive.org/ISCRAM2013/files/115.pdf
Mulero-Chaves, J., & Parraga-Niebla, C. (2013) Design of an Enhanced Interface for
Composition of Alert Messages: Methodology and Results. Proc. of the Information Systems for
Crisis Response and Management (ISCRAM). Retrieved October 2013 from
http://www.iscramlive.org/ISCRAM2013/files/258.pdf
Palmer, N., Kemp, R., Kielmann, T., & Bal, H. (2012). Raven: Using Smartphones For
Collaborative Disaster Data Collection. Proc. of the Information Systems for Crisis Response
and Management (ISCRAM). Retrieved October 2013 from
http://www.iscramlive.org/ISCRAM2012/proceedings/121.pdf
Ridenour, K., Rissel, S., Powell, W., Gray, R., Fisher, M., & Sommerfield, J. (May 2012).
Bastrop Complex Wildfire Case Study. Texas Forest Service and Bastrop County Office of
Emergency Management Retrieved September 2013, from
http://www.co.bastrop.tx.us/bcdisaster/index.php/wildfire-case-study.
Robinson, Anthony C. (2014) Planning GIS for Emergency Management, Lesson 9: 2008
Sichuan Earthquake - Emerging Theme: Cloud GIS for Emergency Management. The
Pennsylvania State University World Campus. Retrieved October 2013 from
https://www.e-education.psu.edu/geog588/print/book/export/html/1834
Robinson, Anthony; Hardisty, Frank, and Chaplin, George. (2012). Geospatial System Analysis
and Design, Lesson 3: Developing Designs. The Pennsylvania State University World Campus.
Retrieved September 2013 from https://www.e-education.psu.edu/geog583/node/31
Rosson, Mary and Carroll, John M. (2002) Scenario-Based Design. Chapter 53 in J. Jacko & A.
Sears (Eds.), The Human-Computer Interaction Handbook: Fundamentals,
Evolving Technologies and Emerging Applications. Lawrence Erlbaum Associates, 2002, pp.
1032-1050. Retrieved September 2012 at https://www.e-education.psu.edu/drupal6/sites/www.eeducation.psu.edu.geog583/files/Rosson_2002_sbd.pdf
Texas Forest Service (2012) 2011 Texas Wildfires: Common Denominators of Home Destruction.
Retrieved September 2013 from http://tfsweb.tamu.edu/uploadedFiles/FRP/New__Mitigation/Safety_Tips/2011%20Texas%20Wildfires.pdf
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Ward, Mike (October 17, 2011). Federal response to Bastrop fire questioned during House
hearing. Austin American-Statesman. Retrieved September 2013 at
http://www.statesman.com/news/news/state-regional-govt-politics/federal-response-tobastrop-fire-questioned-duri-1/nRgQm/

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