Review and Update of the 1995 Federal Wildland Fire Management

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U.S. DEPARTMENT OF THE INTERIORBureau of Land ManagementNational Park ServiceU.S. Fish and Wildlife ServiceBureau of Indian AffairsGeological SurveyBureau of Reclamation

U.S. DEPARTMENT OF AGRICULTUREU.S. Forest Service

DEPARTMENT OF ENERGY

DEPARTMENT OF DEFENSE

DEPARTMENT OF COMMERCENational Oceanic and Atmospheric

Administration/NationalWeather Service

U.S. ENVIRONMENTALPROTECTION AGENCY

FEDERAL EMERGENCYMANAGEMENT AGENCY

NATIONAL ASSOCIATION OF STATEFORESTERS

Executive Summary - i

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The Interagency Federal Wildland Fire Policy Review Working Group (WorkingGroup), at the direction of the Secretaries of the Interior and Agriculture, reviewedthe 1995 Federal Wildland Fire Management Policy & Program Review (1995Report) and its implementation. The Working Group found that the policy isgenerally sound and continues to provide a solid foundation for wildland firemanagement activities and for natural resources management activities of the federalgovernment.

In this Review and Update of the 1995 Federal Wildland Fire ManagementPolicy (Review and Update), the Working Group recommends selected changes andadditions to the 1995 Federal Wildland Fire Management Policy (1995 Federal FirePolicy) to clarify purpose and intent and to address issues not fully covered in 1995.

The Working Group further found that implementation of the 1995 Federal FirePolicy remains incomplete in many areas, especially those that involve collaboration,coordination, and integration across agency jurisdictions and across differentdisciplines. The Working Group recommends a number of strategic implementationactions to ensure that federal wildland fire management policy is successfullyimplemented in all applicable federal agencies on a collaborative, coordinated, andintegrated fashion as quickly as possible. The revisions, additions andimplementation actions recommended in this report are presented in Chapter 3 asthe 2001 Federal Wildland Fire Management Policy.

In summary, the Working Group finds and recommends that federal firemanagement activities and programs are to provide for firefighter and publicsafety, protect and enhance land management objectives and human welfare,integrate programs and disciplines, require interagency collaboration,emphasize the natural ecological role of fire, and contribute to ecosystemsustainability.

The 2001 Federal Wildland Fire Management Policy (2001 Federal Fire Policy)contained in this report replaces the 1995 Federal Fire Policy. It should be adoptedby all federal agencies with fire-management-related programs and activities asappropriate through directives, manuals, handbooks, and other documents.

Subsequent to the initiation of this review and update of the 1995 Federal FirePolicy, the Secretaries of the Interior and Agriculture prepared a report, Managingthe Impact of Wildfires on Communities and the Environment: A Report tothe President in Response to the Wildfires of 2000 and the Congress providedsubstantial new appropriations and guidance in the Fiscal Year 2001 Interior andRelated Agencies Appropriations Act. The activities resulting from the Secretaries’report and the Congressional action are generally known as the National Fire Plan.While this Review and Update supports and complements the National Fire Plan, thetwo efforts are different. This Review and Update, with its findings andrecommendations, provides a broad philosophical and policy foundation for federalagency fire management programs and activities, including those conducted under

RE V IEW A N D UP D A T E O F T H E 1995 FE D E R A L W ILD LA N D F IR E MA N A G E ME N T POL IC Y

ii - Executive Summary

the National Fire Plan. In contrast, the National Fire Plan and similar interagencyactivities, focus on operational and implementation activities. A major feature of theNational Fire Plan is the interagency (especially between federal and non-federalentities) aspect of risk reduction planning and implementation. In summary, the2001 Federal Fire Policy contained in this report is focused on internal federal agencystrategic direction for a broad range of fire management related activities while theNational Fire Plan is a more narrowly focused and tactical undertaking involvingboth federal and non-federal entities.

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The 1995 Report produced the first single comprehensive federal fire policy forthe Departments of the Interior and Agriculture. That review was stimulated by the1994 fire season with its 34 fatalities and growing recognition of fire problemscaused by fuel accumulation. The resulting 1995 Federal Fire Policy recognized, forthe first time, the essential role of fire in maintaining natural systems.

In the aftermath of the escape of the Cerro Grande Prescribed Fire in May of2000, the Secretaries of the Interior and Agriculture requested a review of the 1995Federal Fire Policy and its implementation. Their charge to the Working Groupincluded:

● Review the implementation status of the 1995 Federal Fire Policy.● Address specific issues related to interagency coordination, cooperation,

availability, and use of contingency resources.● Provide recommendations to the Secretaries for strengthening the

organizational structure of wildland fire management programs to ensureeffective implementation of a cohesive federal wildland fire policy.

● Provide any other recommendations that would improve federal wildland firemanagement programs.

● Recommend a management structure for completing implementation of therecommendations.

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The Working Group reached the following principal conclusions:● The 1995 Federal Fire Policy is still generally sound and appropriate.● As a result of fire exclusion, the condition of fire-adapted ecosystems

continues to deteriorate; the fire hazard situation in these areas is worse thanpreviously understood.

● The fire hazard situation in the Wildland Urban Interface is more complexand extensive than understood in 1995.

● Changes and additions to the 1995 Federal Fire Policy are needed to addressimportant issues of ecosystem sustainability, science, education,communication, and to provide for adequate program evaluation.

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Executive Summary - iii

● Implementation of the 1995 Federal Fire Policy has been incomplete,particularly in the quality of planning and in interagency and interdisciplinarymatters.

● Emphasis on program management, implementation, oversight, leadership,and evaluation at senior levels of all federal agencies is critical for successfulimplementation of the 2001 Federal Wildland Fire Management Policy (2001Federal Fire Policy).

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Each of the departments or agencies participating in the review should adopt theGuiding Principles, 2001 Federal Fire Policy statements, and Implementation Actionsfound in Chapter 3 of this Review and Update. All federal fire program activitiesshould take place in cooperation and partnership with State and other organizations.

Full implementation of many specific Action Items from the 1995 Federal FirePolicy remains critical for the successful implementation of the 2001 Federal FirePolicy. The Review and Update contains a detailed listing of the status of thoseAction Items, along with appropriate future actions based on the 2001 Federal FirePolicy and associated Implementation Actions.

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The 2001 Federal Fire Policy and its implementation are founded on thefollowing Guiding Principles:

1. Firefighter and public safety is the first priority in every fire managementactivity.

2. The role of wildland fire as an essential ecological process and naturalchange agent will be incorporated into the planning process.

3. Fire management plans, programs, and activities support land and resourcemanagement plans and their implementation.

4. Sound risk management is a foundation for all fire management activities.5. Fire management programs and activities are economically viable, based

upon values to be protected, costs, and land and resource managementobjectives.

6. Fire management plans and activities are based upon the best availablescience.

7. Fire management plans and activities incorporate public health andenvironmental quality considerations.

8. Federal, State, tribal, local, interagency, and international coordination andcooperation are essential.

9. Standardization of policies and procedures among federal agencies is anongoing objective.


iv - Executive Summary

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● Ecosystem Sustainability: The 1995 Federal Fire Policy recognized the role fireplays as a critical natural process. This Review and Update builds on the 1995Report to include policies recognizing the role of fire in sustaining healthyecosystems, the restoration and rehabilitation of burned lands, and theimportance of sound science in fire management activities.

● Fire Planning: The 1995 Federal Fire Policy requires Fire Management Plansfor all areas with burnable vegetation. Significant work remains to completethese plans for many areas. Many plans need updating and integration withunderlying land management plans. Agencies such as the Departments ofDefense and Energy need to coordinate their planning efforts based on the 2001Federal Fire Policy. Fire Management Plans that address all aspects of firemanagement activities remain the foundation for implementing the 2001 FederalFire Policy and must be completed as promptly as possible.

● Fire Operations: The 1995 Federal Fire Policy statements on operationalaspects of fire management including safety, protection priorities, preparedness,suppression, use of wildland fire, prevention, and Wildland Urban Interface rolesand responsibilities, are carried forward in the 2001 Federal Fire Policy. The2001 Federal Fire Policy clearly states that response to wildland fire is based onthe Fire Management Plan, not the ignition source or location of the fire. TheReview and Update recognizes the need to reach agreement on the requirementsfor weather products and services, and the best means to meet thoserequirements.

● Interagency Coordination and Cooperation: A key theme of the 1995 FederalFire Policy is the importance of standardization and interagency cooperation andcoordination among federal agencies and between federal agencies and non-federal organizations. The Review and Update recognizes the importance ofincluding additional federal land managing agencies (e.g. Department of Defenseand Department of Energy) and agencies with supporting or related programs(e.g. National Weather Service, Environmental Protection Agency, U.S.Geological Survey, Federal Emergency Management Agency) as full partners inwildland fire management activities and programs. The Review and Update alsoadds a specific policy on communication and education to ensure that the 2001Federal Fire Policy is well understood inside the fire management agencies andby the public.

● Program Management and Oversight: The Working Group found that thereis no effective means of overseeing and evaluating implementation of fire policy,especially across agency and program lines. A new policy on evaluation istherefore included in the 2001 Federal Fire Policy. The need for a mechanismfor coordinated interagency and interdisciplinary fire management programleadership and oversight is included in the Implementation Actions. Otheractions to improve program management include analyses of workforcerequirements and of fire management and suppression organizational structures.

Additional copies of this report may be obtained from

the Bureau of Land Management Office of Fire and Aviation

at the

National Interagency Fire Center

Attn: External Affairs Office

3833 South Development Avenue

Boise, Idaho 83705-5354

(208) 387-5457

.

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EXECUTIVE SUMMARYOverview .......................................................................................................................... iBackground.....................................................................................................................iiPrincipal Conclusions ................................................................................................... iiImplementation............................................................................................................. iiiGuiding Principles ........................................................................................................ iiiKey Themes of the Review and Update.................................................................iv

CHAPTER 1 — BACKGROUND AND SCOPEEvolution of Federal Wildland Fire Management Policy .....................................11995 Fire Policy and Program Review......................................................................2Charge from the Secretaries of the Interior and Agriculture...............................3How the Review Was Done ........................................................................................4Important Fire Management Issues ..........................................................................5

CHAPTER 2 — FINDINGS OF THE WORKING GROUPIntroduction....................................................................................................................9Findings ...........................................................................................................................9Proposed Changes and Actions ...............................................................................19

CHAPTER 3 — 2001 FEDERAL WILDLAND FIREMANAGEMENT POLICYGuiding Principles .......................................................................................................212001 Federal Wildland Fire Management Policy ..................................................22Implementation Actions ............................................................................................25

CHAPTER 4 — APPENDICESAPPENDIX A: Bibliography..................................................................................33APPENDIX B: Glossary and Acronyms.............................................................35APPENDIX C: Changes to the Guiding Principles and

1995 Federal Fire Policy, with Rationale for Changes..................................39APPENDIX D: Tabular Crosswalk between the 1995 and

2001 Federal Fire Policies...................................................................................43APPENDIX E: Disposition of 1995 Action Items...........................................47APPENDIX F: Wildland Fire Flowchart.............................................................75APPENDIX G: Working Group and Support Staff..........................................77

Chapter 1 — Background and Scope - 1

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EVOLUTION OF FEDERAL WILDLAND FIRE MANAGEMENT POLICY

The first national fire policy came after several years of severe fires between 1910and 1935. In the context of the ecological theory of the time, fire exclusion wasbelieved to promote ecological stability. In addition, fire exclusion could also reducecommodity damages and economic losses. In 1935, the USDA Forest Serviceinstituted the “10 AM Policy,” wherein the objective was to prevent all human-causedfires and contain any fire that started by 10 a.m. the following day.

By the 1960s, fire management costs were increasing exponentially. The 1964Wilderness Act, Tall Timbers Research Conferences, and Southern Forest Fire Labresearch demonstrated the positive benefits derived from natural and prescribed fire.As a result, national fire policy began to evolve to address both the economic andecological benefits of not aggressively controlling, and even using, fire. In February1967, the USDA Forest Service permitted leeway for early- and late-season fires. In1968, the National Park Service changed its policy to recognize the natural role offire, allow natural ignitions to run their course under prescribed conditions, and useprescribed fires to meet management objectives. In 1971, the USDA Forest Service10-Acre Policy was added, which set a pre-suppression objective of containing allfires within 10 acres.

In 1977 a new fire policy was selected by the USDA Forest Service that replacedboth the 10 AM and 10-Acre policies. The new policy encouraged a pluralisticapproach — fire by prescription. Even for suppression, once initial attack failed,alternatives to full suppression were to be considered. Fire suppression became firemanagement.

The 1989 review of the 1988 Yellowstone fires continued fire policy evolution.The review report affirmed the positive benefits of fire, but also identified theinherent risks and liabilities of using fire and recommended greater planning,preparation, cooperation, and management oversight.

The 1994 fire season with its 34 fatalities (14 at South Canyon, Colorado)precipitated the 1995 Federal Wildland Fire Management Policy & ProgramReview (1995 Report). This review again affirmed the positive benefits of fire. Itrecognized that fire was part of a larger problem, one of several symptoms ofnatural ecosystems becoming increasingly unstable due to altered ecological regimes.It talked about the needs for landscape-level resource management, the integrationof fire into land management planning and implementation, and the involvement ofall affected landowners and stakeholders.


2 - Chapter 1 — Background and Scope

In light of the extensive fires in the summer of 2000, President Clinton asked theSecretaries of the Interior and Agriculture to prepare an analysis of actions andrequirements. Their report, Management the Impact of Wildfires onCommunities and the Environment: A Report to the President in Responseto the Wildfires of 2000 focused on several key points: restoring landscapes andrebuilding communities, undertaking projects to reduce risks, working directly withcommunities, and establishing accountability. The Congress expressed its supportwith substantial new financial resources in the two Departments’ Fiscal Year 2001appropriations, along with direction for aggressive planning and implementation toreduce risks of wildland fire in Wildland Urban Interface areas.

1995 FIRE POLICY AND PROGRAM REVIEW

The 1995 Report resulted in the first comprehensive statement of wildland firepolicy coordinated between the Departments of the Interior and Agriculture. Inaddition to the two Departments joining together in unified policy, the 1995 Reportarticulated clear direction on important issues of safety, the role of fire in naturalresource management, and the relative roles of federal and non-federal agencies inthe Wildland Urban Interface. The 1995 Report also contained significantbackground narrative and documentation on the importance of these policypositions.

This Review and Update builds on the 1995 background and rationale for theunderlying body of Federal Wildland Fire Management Policy. In particular, thefollowing ideas from the 1995 Report remain valid:

1. Protection of human life is the first priority in wildland firemanagement.

2. Every firefighter, every fireline supervisor, every fire manager, andevery agency administrator takes positive action to ensure compliancewith established safe firefighting practices.

3. Fire exclusion efforts, combined with other land-use practices, havein many places dramatically altered fire regimes so that today’s firestend to be larger and more severe. It is no longer a matter of slowaccumulation of fuels; today’s conditions confront us with thelikelihood of more rapid, extensive ecological changes beyond any wehave experienced in the past. To address these changes and thechallenge they present, we must first understand and accept the roleof wildland fire, and adopt land management practices that integratefire as an essential ecosystem process.

4. The task before us – reintroducing fire – is both urgent andenormous. Conditions on millions of acres of wildlands increase theprobability of large, intense fires beyond any scale yet witnessed.These severe fires will in turn increase the risk to humans, toproperty, and to the land upon which our social and economic wellbeing is so intimately intertwined.



5. Agencies must create an organizational climate that supportsemployees who implement a properly planned program toreintroduce wildland fires.

6. Where wildland fire cannot be safely reintroduced because ofhazardous fuel build-ups, some form of pretreatment must beconsidered, particularly in Wildand Urban Interface areas.

7. The Wildland Urban Interface is defined as the line, area, or zonewhere structures and other human development meet or interminglewith undeveloped wildland or vegetative fuels.

8. The Wildland Urban Interface has become a major fire problem thatwill escalate as the nation moves into the 21st Century. Peoplecontinue to move from urban to wildland areas. They give littlethought to the wildfire hazard, and bring with them theirexpectations for continuation of urban emergency services. Further,property owners believe that insurance companies or disasterassistance will always be there to cover losses. There is a widespreadmisconception by elected officials, agency managers, and the publicthat Wildland Urban Interface protection is solely a federal concern.

9. Fire protection problems in the Wildland Urban Interface arecomplex. Complicated barriers must be overcome to address them.These barriers include legal mandates, zoning regulations, fire andbuilding codes, basic fire protection infrastructure, insurance and fireprotection grading and rating systems, environmental concerns, andFire Protection Agreements. Political, social, and psychologicalfactors further complicate the problems. There is no one simplesolution. Leadership and cooperation are essential.

10. The problem is not one of finding new solutions to an old problem,but of implementing known solutions. Deferred decision making isas much a problem as the fires themselves. If history is to serve us inthe resolution of the Wildland Urban Interface problem, we musttake action on these issues now. To do anything less is to guaranteeanother review process in the aftermath of future severe fires.

CHARGE FROM THE SECRETARIES OF THE INTERIOR AND AGRICULTURE

Following the investigation, and subsequent report by the Independent ReviewBoard, of the May 2000 Cerro Grande Prescribed Fire in New Mexico, the Secretaryof the Interior announced that he and the Secretary of Agriculture would reconvenethe Working Group that developed the 1995 Federal Fire Policy to assess the statusof the policy and its implementation.

In a June 27, 2000, memorandum the two Secretaries outlined their direction forreviewing the 1995 Policy and its implementation. This memorandum identified fivespecific review tasks:



1. Review the status of the implementation of the 1995 Federal FirePolicy and provide recommendations to the Secretaries forcompleting full implementation of the policy.

2. Address specific issues raised in the Cerro Grande Prescribed FireInvestigation Report and the subsequent Independent Review BoardReport, and provide recommendations to the Secretaries forresolving these issues.

3. Provide recommendations to the Secretaries for strengthening theorganizational aspects of the wildland fire management programs inthe two Departments to ensure effective implementation of the 2001Federal Fire Policy.

4. Provide any other recommendations to the Secretaries that wouldimprove the wildland fire management programs in the twoDepartments.

5. Recommend a management structure for completing implementationof the recommendations.

HOW THE REVIEW WAS DONE

The Secretaries of the Interior and Agriculture asked that the Working Groupthat developed the 1995 Federal Fire Policy be reconvened. To honor this request,the structure and membership of the earlier group was replicated as nearly aspossible, using as many of the same individuals as available. In some cases,individuals had retired or moved to other positions, so their successors or individualsin similar positions or with similar backgrounds were asked to serve. As in 1994-95,the Working Group was co-chaired by the USDA Forest Service and the Departmentof the Interior.

In recognition of the importance of wildland fire in other agencies, theDepartments of Energy and Defense and the Bureau of Reclamation were invited tojoin the Working Group. In addition, the National Association of State Foresterswas invited to join the group to represent the important perspectives of non-federalwildland fire agencies. The resulting group included a broad mix of fire andresource managers, line managers, and program managers from programs closelyassociated with fire management. Professional staff from all of the participatingagencies supported the Working Group.

To respond to the tasks in the memorandum from the Secretaries, the WorkingGroup used the following principal sources of information:

• Status of the implementation of the specific Action Items inthe 1995 Report – each of the five bureaus with fire managementprograms (USFS, BLM, NPS, BIA, FWS) was asked to report on thestatus of the Action Items. Their responses were tabulated andreviewed.

• Survey of Employees – the Brookings Institution wascommissioned to survey a random sample of fire managers, resource



managers, and agency administrators in each bureau around thecountry regarding their views on adequacy and implementation ofthe 1995 Federal Fire Policy.

• Employee Input- employees were invited to provide their views onthe 1995 Federal Fire Policy and its implementation through a Website.

• Non-governmental Input – letters were sent to non-governmentalorganizations requesting their views on the 1995 Federal Fire Policyand its implementation.

• Reports, Reviews, Studies – a variety of internal and externalreports, reviews, studies, and investigations of various aspects ofwildland fire were reviewed.

• Program Data – statistical and other descriptive sources ofinformation about wildland fire scope and activity were compiled andreviewed.

• Issue-specific Analyses – a number of short papers or oralpresentations on specific issues were developed by professional staff.

The 2001 Federal Wildland Fire Management Policy (2001 Federal Fire Policy)contained in this Review and Update replaces the 1995 Federal Fire Policy. It shouldbe adopted by all federal agencies with fire-management-related programs andactivities as appropriate through directives, manuals, handbooks, and otherdocuments.

The Working Group focused its efforts on “strategic” issues surrounding the1995 Federal Fire Policy and its implementation. More specific implementationissues are best addressed at the program management level. Thus, a number ofimportant but specific operational or policy implementation issues were raised in thecourse of the Working Group’s discussions, but not addressed in this Review andUpdate.

IMPORTANT FIRE MANAGEMENT ISSUES

HISTORICAL CONTEXT

Historically, fire has been a frequent and major ecological factor in NorthAmerica. In the conterminous United States during the preindustrial period (1500-1800), an average of 145 million acres burned annually. Today only 14 million acres(federal and non-federal) are burned annually by wildland fire from all ignitionsources. Land use changes such as agriculture and urbanization are responsible for50 percent of this 10-fold decrease. Land management actions including landfragmentation and fire suppression are responsible for the remaining 50 percent.

This decrease in wildland fire has been a destabilizing influence in many fire-adapted ecosystems such as ponderosa pine, lodgepole pine, pinyon/juniperwoodlands, southern pinelands, whitebark pine, oak savanna, pitch pine, aspen, and



tallgrass prairie. Fuels increased and understory vegetation became more dense. Asa result, those wildland fires that did occur were larger and more severe thanhistorical fires. Eliminating fire also affected individual plant species. For example,Hessl and Spackman (1995) found that, of the 146 threatened, endangered, and rareplant species found in the conterminous U. S. for which there is conclusiveinformation on fire effects, 135 species benefit from wildland fire or are found infire-adapted ecosystems.

This decrease in wildland fire has also provided positive human health and welfarebenefits by significantly decreasing natural air pollution (e.g., particulate matter lessthan 10 microns in size: PM-10.).

Preindustrial 1940 1950 1960 1970 1980 1990 20000

20

40

60

80

100

120

140

160Wildland Fire Acreage Burned

P re in du strial 19 40 1950 19 60 19 70 19 80 19 90 19950

1

2

3

4

5

6

Total PM-10 Emissions Prescribed Fire Wildland Fire



CURRENT CONDITION OF FEDERAL LANDS

In 1999, Hardy et al. published a preliminary course-scale analysis of current fireregimes and land condition classes in the conterminous U. S. This analysis, for thefirst time, provided a complete fuels management assessment of all federallymanaged lands, and a picture of the magnitude of the ecological effects of theexclusion of landscape-scale fire. Refinement of this preliminary data (e.g.,chaparral) is currently underway and will eventually provide greater resolution andimproved usefulness.

The federal government has management responsibility for approximately 415million acres of fire-adapted land in the conterminous United States. Approximately200 million of these acres were historically subject to frequent fire regimes with firereturn intervals of less than 35 years. Included in these lands are ponderosa pineforests, southern pinelands, and prairie grasslands. Another 215 million acres werehistorically subject to infrequent fire regimes with fire return intervals greater than 35years. Examples include lodgepole pine, northern hardwoods, and desert shrublands.

The federal lands in these two fire regimes have been further classified into threecondition classes (Hardy et al. 1999):

ConditionClass Frequent Infrequent Total

……..Millions of Acres……

1 69 135 204

2 93 48 141

3 38 32 70

Total 200 215 415

Over 200 million acres of federal land are in Condition Class 1, where humanactivity has not significantly altered historical fire regimes, or adequate landmanagement activities have successfully maintained ecological integrity. These areasusually pose relatively low public safety and ecological risks, and need little correctivemanagement. However, current maintenance management actions such asprescribed fire need to continue.

On the 141 million acres of Condition Class 2 land, human activity hasmoderately altered historical fire regimes, and/or land management actions havebeen ineffective, partially compromising ecological integrity. One or more fire returnintervals have been missed, resulting in moderate increases in fuel load and fire size,intensity, and severity. These areas pose a moderate public safety and ecological riskfrom severe fire, and need moderate levels of restoration treatments (e.g., mechanicalfuel removal, prescribed fire). Without any management action, these lands willdegrade to Condition Class 3. Continued maintenance treatments followingrestoration are also needed to prevent severe fires and sustain ecological integrity.



Ecological integrity has been significantly compromised on 70 million acres ofCondition Class 3 lands, and fires are a high risk factor because of their potential riskto human values (public safety and health, property, economies) and natural resourcevalues (watersheds, species composition). Several fire return intervals have beenmissed, resulting in considerable accumulation of live and dead fuels, and increasingthe potential of high-severity fires. These lands pose the greatest risk to publicsafety and are in most danger of ecological decline. They require extensiverestoration and diligent maintenance.

THE 2000 FIRES

More acres burned in 2000 than in any other year in the last half-century. By mid-December, approximately 4.8 million acres had been burned by wildland fires and 1.0million acres by prescribed fires on federal lands alone.

With a better understanding of the magnitude of the fire management problem,the federal land management agencies are now planning aggressive actions tomitigate the situation. The USDA Forest Service has proposed fuels managementtreatments (prescribed fire and mechanical) of up to 3 million acres annually.Department of the Interior bureaus and the Department of Defense have alsoproposed similar activities. Fiscal Year 2001 fire management appropriations for theDepartment of the Interior and the USDA Forest Service have been increased tobegin to address these landscape stewardship responsibilities.

Chapter 2 — Findings of the Working Group - 9

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After reviewing the various materials and information described in Chapter 1, theWorking Group reached several Findings regarding the overall fire managementsituation, the adequacy and appropriateness of federal wildland fire policies, and theimplementation of those policies. This chapter presents those Findings. The 2001Policy and a series of Implementation Actions follow later in this Review andUpdate.

The 2001 Policy and Implementation Actions are based on these Findings. SomeFindings may result in more than one Implementation Action, and someImplementation Actions may be based on more than one Finding. The objective ofthis chapter is to identify the major areas of concern regarding fire management, firemanagement policy, and implementation of fire management policy.

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The following Findings must be read as an integrated set. The first two Findingspresent a summary or overview of the 1995 Federal Fire Policy and itsimplementation. The remaining findings address specific aspects of the 2001Federal Fire Policy and its implementation.

1. ADEQUACY OF 1995 FEDERAL FIRE POLICY – SUMMARY FINDING

a. The 1995 Federal Fire Policy is generally sound; however, someaspects lack clarity and there are elements missing that wouldmake the policy stronger and more complete.

The review found no fundamental flaws in the 1995 Federal Fire Policy.Experience with implementation of the policy in the past five years hasdemonstrated, however, that some aspects are unclear or unrealistic. Some issues,such as science, ecosystem sustainability, ecosystem restoration, education andcommunication, and program evaluation, were not explicitly addressed in 1995.

b. There is increasing recognition that the fire hazard situation isworse than previously thought and fuels continue to accumulate.


10 - Chapter 2 — Findings of the Working Group

Fuel conditions are outside the range of historical patterns on 211 million acres(70 million acres of condition Class 3, and 141 million acres of condition Class 2federally managed lands). The acreage burned in fuel treatments and wildfirescontinues to be materially less than the historical acreage of wildfires.

2. ADEQUACY OF IMPLEMENTATION OF 1995 FEDERAL FIRE POLICY –SUMMARY FINDING

a. When there was organizational will and commitment about anelement of the 1995 Federal Fire Policy, that element wassuccessfully implemented.

The policy emphasis on firefighter safety was implemented primarily because oforganizational will and commitment to the issue, rather than an integrated,interagency mechanism to drive implementation of the firefighter safety policy. Anoutcome of this commitment was the creation of the Safety Awareness in the FireEnvironment (SAFE Initiative) program, an interagency collaborative mechanism toimplement firefighter safety policy.

b. Incomplete implementation of the 1995 Federal Fire Policy hashindered its success.

The 1995 Report contained over 80 specific Action Items deemed important forimplementation of the 1995 Federal Fire Policy. Inconsistent and incompleteimplementation of some items has resulted in less than successful implementation ofthe overall policy. Those most successfully implemented were those exclusively inthe domain of the traditional fire management organizations. Implementation wasleast successful in areas requiring coordination and agreement among agencies oracross disciplines within agencies. Some items, in retrospect, could not or should notbe implemented as originally written. Planning remains one of the most criticalitems to be implemented. A summary of the status of the Action Items from the1995 Report is found in Appendix E.

c. Adequate reviews have not been conducted to determine if allagencies are implementing recommendations.

Agencies have implemented the policy recommendations unevenly, and there islittle evidence that managers have been held accountable for implementation.

3. SAFETY

a. Safety awareness and commitment to firefighter and public safetycontinues to be the first priority in all aspects of the wildland firemanagement program.

The increased emphasis on safety is one of the most successful aspects of theimplementation of the 1995 Federal Fire Policy. Most of that emphasis has occurredin the traditional fire management activities of fire suppression and directlyassociated activities. Similar commitment and awareness in related programs of fuelstreatment and rehabilitation and restoration are essential. Safety awareness mustcontinue to be an inherent value in fire management, not a response to mistakes oraccidents on specific incidents.



b. The increased emphasis on firefighter and public safety has beeneffective.

Implementation of the 1995 Federal Fire Policy and the Wildland FirefighterSafety Awareness Study has led to increased recognition of the need for safetythrough better firefighting training, awareness, and a strong safety ethic. Publicsafety awareness has been raised by such programs as FIREWISE. However, thereare still too many instances of strategies and tactics which, by their selection, putpeople at risk.

4. ECOSYSTEM SUSTAINABILITY

The use of wildland fire and other treatment of fuels has increasedsignificantly since 1995. This increase, while significant, is far short of thelevel of treatment needed to ensure sustainability of ecosystems.Fire is an important component of ecosystem sustainability, including its

interrelated ecological, economic, and social components. Agencies have recognizedthat fuels management is an important aspect of vegetation management and isintegral to restoring and maintaining ecosystems. Carefully planned and executedfuels treatments have reduced the risk of wildland fire while improving ecosystemconditions and providing economic benefits to communities. Desired futureconditions sought in land management plans are sometimes not achievable becausethe role and influence of fire have not been adequately considered in the planningprocess. In several instances, agencies have treated fuels in some areas to achieve thegreatest land management benefits at the lowest cost per acre. These may not beareas of greatest risk, such as the Wildland Urban Interface.

5. WILDLAND URBAN INTERFACE

a. The scope of the fire hazard problem in the Wildland UrbanInterface is more complex and extensive than envisioned in 1995.Explosive growth in the Wildland Urban Interface now puts entirecommunities and associated infrastructure, and the socioeconomicfabric that holds communities together, at risk from wildland fire.

The public has greater recognition of the problem in Wildland Urban Interfaceareas, but communities and homeowners are still not taking sufficient actions tomitigate fire risks. Programs such as FIREWISE, adoption of the Urban-WildlandUniform Building Code, and Insurance Services Organization (ISO) pilot gradingschedule for Wildland Urban Interface are examples of successes since the 1995Federal Fire Policy was initiated.

The potential for fire starts is also greater in the Wildland Urban Interface, whichincreases risk to natural resources.

b. Federal, State, tribal, and local fire protection agencies are unclearon their roles and responsibilities for structural fire protection andsuppression within the Wildland Urban Interface.



The 1995 Federal Fire Policy addresses roles and responsibilities for structureprotection in the Wildland Urban Interface. However, the 1995 Federal Fire Policyhas been inconsistently implemented and there are conflicts in manual direction,guidelines, and procedures. Large areas of Wildland Urban Interface remain with nostructural fire protection organization. In some cases, this has resulted in federalagencies responding to structural fires despite the direction provided in the 1995Federal Fire Policy.

6. PLANNING

a. Fire Management Plans, based on land management plans andsupported by operational plans, are essential for implementation ofthe 2001 Federal Fire Policy.

Fire Management Plans are fundamental strategic documents, based on landmanagement plans, to guide the full range of fire-management-related activities in aunit or area. Fire Management Plans are supplemented by operational plans such aspreparedness plans, dispatch plans, prescribed fire plans, and prevention plans. FireManagement Plans include discussion of resource management objectives andactivities, such as restoring and sustaining ecosystems and protecting communitiesand public safety. Fire Management Plans also address public health andenvironmental issues such as air and water quality and endangered species. Finally,Fire Management Plans should be developed and implemented across agencyboundaries to ensure consistent approaches to similar conditions. Thus, successfulimplementation of 2001 Federal Fire Policy depends on the development andimplementation of high-quality Fire Management Plans by all land managingagencies.

b. Many areas do not have Fire Management Plans that meet therequirements of the 1995 Federal Fire Policy.

Generally, the scope and completeness of Fire Management Plans completedunder the 1995 Federal Fire Policy have improved, including additional considerationof the environmental impacts of fire management options and strategies. However,many plans remain incomplete. Some have not been updated since 1995, some arenot based on the current approved land management plan, and some do not addressthe full range of issues required. Plans must be based on underlying landmanagement plans to integrate fire with natural resource objectives if the desiredfuture conditions identified in these plans are to be achieved.

Preparation of Fire Management Plans is hindered by inconsistent or incompleteguidance on how public health and environmental impacts are to be considered.Recent efforts by the National Park Service and the USDA Forest Service to addressair quality and smoke management issues represent progress, but much workremains.



7. RESPONSE TO WILDLAND FIRE

Multiple terms for various management options to respond to wildlandfires have confused agency managers and employees, cooperators,partners, and the public, and have perpetuated multiple fire managementprogram elements.Policies, manuals, handbooks, procedures, and other aspects of implementation

of the 1995 Federal Fire Policy often use a variety of terms such as “wildland fire,”“wildfire,” “fire use,” “wildland fire for resource benefit,” and “prescribed fire”interchangeably. The proliferation of similar terms was frequently driven byconcerns about the source of ignition of the fire, the land use designation where thefire was located, and administrative considerations such as funding sources. The useof these many similar terms has caused confusion and misunderstanding within theagencies and among cooperators, partners, and the public. In addition, differentsystems have been developed or perpetuated (based on the “type” of fire involved)for training, qualifications, dispatch, and other aspects of fire management.

8. SCIENCE

a. Although research and scientific activities have expanded tosupport fire management programs, there are gaps in scientificunderstanding, and integration of scientific disciplines is oftenlacking.

Research agreements across agency boundaries, such as the Joint Fire SciencesProgram, have benefited fire management programs. However, scientificinformation on many aspects is either lacking or needs to be made available. Forexample, information on the relative effectiveness and consequences of differentfuel treatment methods is being developed but is not yet available. In addition, littleinformation exists on the effects of post-fire rehabilitation activities that fullyintegrate biological, hydrological, and geological disciplines. There is also a lack ofinformation concerning the social science implications of fire management activitieson firefighting personnel, decision makers, and the public.

b. Individual agencies generally collect adequate fire data, but nosystem exists for collecting and compiling consistent data amongagencies.

No centralized database is universally available to users and scientists for long-term monitoring, research, and planning. Information about the use of fire cannotbe aggregated because each agency uses a different system for data collection. Thisoverall lack of a common system raises questions about the validity of actualaccomplishments and cost data reporting.

No system exists for collecting and tracking data on air pollutant emissionsproduced by biomass burning, or for assessing the air quality impacts from wildland,prescribed, and agriculture fires on private, federal, tribal, and State lands. State airquality regulators do not have a national database that includes biomass-burninginformation. Federal land management agencies are working with the WesternRegional Air Partnership to develop an air pollution emissions tracking system thatwill store federal fire data for the western region of the country. Currently there is



no proposal to track non-federal wildland and prescribed fire or agricultural burningdata for the western region, or biomass burning data for the remainder of thecountry.

9. WORKFORCE AND ORGANIZATION

a. The existing workforce and the skills mix of that workforce areinsufficient to address changing fire management priorities andincreased fire management complexities.

Demographic trends such as an aging workforce, two-career families, changingcareer interests, and other factors have significantly reduced the numbers ofpersonnel available for fire management activities, especially fire suppression andfuels management. The general downsizing of federal agencies with firemanagement activities has exacerbated this problem. Finding sufficient personnelwithin agencies to meet annual fire season staffing requirements has beenincreasingly difficult. The 2000 fire season necessitated the use of internationalwildland fire managers.

Land management and regulatory agencies have not been able to keep pace withthe changing fire management priorities and complexities. New skills and additionalcapabilities will be required in the future.

In the Fiscal Year 2001 appropriations for the Department of the Interior andUSDA Forest Service, Congress recognized that increased funding for current andfuture years is needed to achieve effective preparedness and hazardous fuelsreduction capabilities.

b. The structure of fire management and fire suppressionorganizations needs to be reviewed.

As the federal fire management program continues to grow in size, scope, andcomplexity, new concepts in program management organizations, new approaches tofire suppression and prescribed fire organizations, and new mechanisms forincreasing training in suppression, prescribed fire, decision-making, and supportprograms may be required.

10. FUNDING

a. Lack of adequate funding has been a barrier to fullimplementation of the 1995 Federal Fire Policy.

Funding and budget structure for the four Interior agencies and the USDAForest Service have significantly improved since adoption of the 1995 Federal FirePolicy. Budgets have increased for fire management preparedness. Changes inbudget structure have increased the flexibility of fire program managers toimplement fuels management and other activities. However, overall funding levelshave not been sufficient to meet or address all of the fire management, fuelsmanagement, and other needed activities.

b. Adequate funding for fire management and associated programs isessential for the future successful implementation of the 2001Federal Fire Policy.



The Fiscal Year 2001 appropriations for the Departments of the Interior andAgriculture contains additional funding for fire management preparedness, fuelsmanagement activities, scientific support, post-fire stabilization and rehabilitation,and support for State and local partners. This increase implements a strategicprogram outlined in a report from the Secretaries of the Interior and Agriculture inSeptember of 2000. Continuing comparable funding to support all aspects of firemanagement, fuels management, and related activities will be required in Fiscal Year2002 and beyond to ensure the implementation of the Report to the President andthe 2001 Federal Fire Policy.

Adequate funding for agencies not historically considered fire managementagencies is also critical. The Department of Defense, the Department of Energy,and the Bureau of Reclamation (all of which have land management responsibilities)do not have adequate stable funding sources to implement the 2001 Federal FirePolicy.

Finally, stable federal support for non-federal organizations through programssuch as the Cooperative Forestry Program of the USDA Forest Service ensures thatcooperating fire organizations are able to implement the fire policy consistently.

11. INTERAGENCY COOPERATION AND COORDINATION

a. Not all federal agencies with land-management or other fire-related responsibilities, and the lands under their jurisdiction, arefully integrated into federal fire management.

The USDA Forest Service and the four principal land-managing agencies of theDepartment of the Interior have traditionally been considered the “firemanagement” agencies of the federal government. However, the Departments ofDefense and Energy both manage substantial acres with burnable vegetation. Otheragencies, such as the Bureau of Reclamation, also manage smaller amounts of similaracres. These agencies have not been included under the 1995 Federal Fire Policy, nordo they generally participate in such fire management activities as training,qualification, and sharing of firefighting resources. In addition, other federalagencies have programs with significant consequences for the implementation offederal fire policy, including support services such as meteorology, scientificinformation and analysis, and regulation of air and water quality. Successfulimplementation of the concepts, as well as the letter, of the 2001 Federal Fire Policydepends on the complete integration of all federal agencies with programs affectingland management and fire management. Integration is required at the strategic,program planning level as well as at the tactical, program implementation level.

b. Failure to fully implement the 1995 Federal Fire Policy and theassociated Action Items stems from the lack of a mechanism tointegrate actions and activities across agency, program, anddiscipline boundaries.

The 1995 Federal Fire Policy presented unusual, if not unique, challenges totraditional organizational arrangements. It required coordination, consistency, andagreement among five operating agencies in two Departments, as well as requiringfire managers to forge new working relationships with other disciplines within thoseagencies. Implementation measures were required at the national, regional, and



operating unit level. Because no mechanism exists to provide leadership,coordination, conflict resolution, or oversight on a broad scale, however, mostaspects of implementation requiring interagency or interdisciplinary solutions havebeen unsuccessful. Program managers outside of traditional fire management, suchas endangered species, cultural resources, weather, and environmental protection,have no means of regular interaction with fire program managers. Further, there isno focal point or clearinghouse capability to provide a comprehensive picture of thefull range of fire management activities including fuels management, restoration andrehabilitation, traditional fire management programs, and coordination with non-fireregulatory programs.

c. Collaboration, coordination, and integration of fire managementplanning and implementation between federal agencies and non-federal agencies are incomplete and inconsistent.

Successful implementation of the 2001 Federal Fire Policy will requirecoordination, collaboration, and integration across governmental boundaries, as wellacross federal agency and discipline boundaries. Fire management planning,operational planning, and operational activities should include collaboration,coordination, and integration among federal agencies and non-federal entities such asState, tribal, and local governments to ensure safety, efficiency, and healthy,sustainable ecosystems. Uneven collaboration, coordination, and integration havehindered successful implementation of the 1995 Federal Fire Policy.

12. COMMUNICATION AND EDUCATION

a. The public, as well as some agency employees and managers, stilldo not adequately understand the role of fire in maintainingnatural systems.

Since the 1995 Federal Wildland Fire Management Program Review, agencieshave increased their efforts to provide accurate, consistent information to the publicand to employees about wildland fire. Media coverage of wildland fire incidents overthe last few years has been increasingly sophisticated in describing the importance offire in maintaining natural forest and range conditions, in describing theconsequences of past fire suppression practices, and in explaining use of prescribedfire. However, many people continue to believe that fires can and should beimmediately suppressed, and fail to recognize that fire is a natural event in mostareas. Continued success in implementing federal fire policy depends on a well-educated public and agency workforce. Surveys commissioned for this review, aswell as other surveys, indicate a lack of adequate understanding of the 1995 FederalFire Policy among employees in key management and leadership positions.

b. The federal government lacks a standard, consistent message onthe importance and role of fire in natural resources management.

Despite significant education and communications efforts on the part of mostagencies, there is no integrated, consistent communication strategy. The use ofdifferent terminology and emphases among agencies results in mixed messages tothe public and employees.



13. EVALUATION

a. Monitoring and oversight of overall implementation of the 1995Federal Fire Policy have not been adequate, and no effectiveinteragency capability for such monitoring and oversight appearsto exist.

The little monitoring and oversight of implementation that has taken place overthe last five years has been largely focused on discreet, agency-specific issues. Anearly effort at broader management oversight, the Management Oversight Team, wasineffective. At the beginning of this review there was no overall assessment availableon the status of implementation of the 80-plus specific Action Items in the 1995Report, nor were there any agreed upon performance measures or metrics forgauging status and adequacy of implementation. At best, there was generalinformation about national level status of implementation, such as the existence ofdirection to field units to take certain actions. Detailed information about the statusof implementation at the field level generally remains unavailable.

b. There have been no meaningful consequences for failure by agencyadministrators at any organizational level to fully implement allaspects of the 1995 Federal Fire Policy, nor are there significantincentives or rewards for efforts at implementation.

As noted elsewhere, implementation of the 1995 Federal Fire Policy hasbeen incomplete and inadequate, particularly in those areas requiringcoordination and agreement across agency and discipline boundaries. There isno system of accountability for this failure, nor have there been significantconsequences for agency administrators and program managers at any level.Major examples include the failure of most units to adopt Fire ManagementPlans that meet the requirements of the 1995 Federal Fire Policy, the failure ofagency administrators to minimize costs of suppression on large project fires,and the failure of the five major fire management agencies to agree uponcommon program management tools and systems for resource planning andbudgeting. Of particular concern is the lack of consequences for failure toresolve differences among agencies and disciplines, and for failing to ensureintegration among disciplines. In general, agency management has not takensteps at either the unit level or the program management level to identifyimplementation problems or to resolve those problems. There have been noconsequences for failure to take these steps. However, many individuals andsome organizations have taken important steps to implement the 1995 FederalFire Policy, but their efforts have largely been without incentives or rewards.

14. WEATHER SERVICES

a. Disagreement remains between the National Weather Service(NWS) and federal land management agencies involved in wildlandfire management on the products, standards, and level of weatherservices required and how they are provided.



Weather services required for fire management activities have increased since the1995 Report, due to such factors as a continued increase in wildland fire severity, athreefold increase in fuel reduction projects, and increasing encroachment ofdevelopment into the wildland environment. Since the implementation of the 1995Federal Fire Policy, the NWS has implemented a modernization and associatedrestructuring using new technology and improved science. One result is that theforecast area coverage for each forecast office has been significantly reduced, buteach forecaster now provides support to several program areas (Public, Aviation, FireWeather, and Marine.) In addition, the number of available NWS IncidentMeteorologists (IMETs) has been doubled to provide support for the increase inlarge fire events.

Fire management agencies believe they require additional weather services fromthe NWS to support the full range of fire management activities. Many firemanagers view the loss of dedicated fire weather forecasters as a reduction in qualitythat is unacceptable. Fire managers also believe that most NWS forecasters do nothave the experience in fire weather forecasting to deal with site-specific spotforecasts that dedicated fire weather forecasters have provided. The fire weatherforecaster is seen as a full partner on the fire management team, often involvedduring the off season in training and coordination meetings.

The inability of NWS and the federal fire management agencies to agree on theproducts, standards, and level of weather services required to support firemanagement activities and the means of meeting these requirements continue tohamper full implementation of the 2001 Federal Fire Policy. Federal firemanagement agencies have identified a requirement for 20 additional fire weathermeteorologists due to inadequacy of current weather services support. The FiscalYear 2001 appropriations for the Departments of the Interior and Agricultureinclude funding for those meteorologists. This represents an ad hoc, piecemealapproach to addressing fire weather service issues and does not resolve theunderlying disagreement.

b. The lack of NWS support for “non suppression” fire managementactivities by non-federal entities significantly hinders integratedinteragency wildland fire management programs.

The NWS interprets statutory and related committee report language to prohibitthem from providing support to non-federal organizations for wildland fires that arebeing managed for beneficial uses such as hazardous fuel reduction. The 2001Federal Fire Policy requires agencies to plan and execute wildland fire and other fuelsmanagement treatments on a landscape basis and in partnership with State andprivate landowners. Lack of specialized wildland fire forecasts to State agencies is abarrier that increases costs and reduces overall quality of fire plans and wildland firetreatments, as well as increasing risk to public and firefighter safety. Throughcooperative agreements, federal employees are often involved on these fires eventhough they are not on federal lands.

Any fire occurring on wildland is defined as a wildland fire. The type of ignitionor wildland fire objective does not change the weather forecasting needs. Providingthe full suite of weather products and services to support all wildland firemanagement actions is essential, and should not depend on the source of ignition orlocation of the fire.



The private meteorological industry has shown little interest in providing weatherservices to enhance NWS products to meet fire management requirements. Stategovernments in Florida and Oregon have had to hire forecasters to meet their needsalthough their needs are not simply State in nature but apply across all landholders.This adds unnecessary complexity and cost.

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To address the above Findings, the Working Group developed GuidingPrinciples, Policy Statements, and Implementation Actions that are presented inChapter 3.

The Guiding Principles remain the same as those contained in the 1995 Reportwith the addition of the word “international” to the guiding principle oncoordination and cooperation. This change recognizes the increasing role that othercountries play in assisting the U.S. and in the increasing exchange of technology,training, skills, and knowledge of wildland fire issues between the U.S. and othercountries.

As a result of experiences since 1995, as well as greater understanding of thecomplexity and seriousness of the wildland fire situation in this country, the 2001Federal Fire Policy contains five additional policy statements along with revisions toseveral statements in the 1995 Federal Fire Policy. Chapter 3 also includes strategicImplementation Actions necessary for successful implementation of the 2001Federal Fire Policy.

The new policy statements complement and supplement the current set,and include:

• the role of fire in ensuring ecosystem sustainability;• the need for restoration and rehabilitation of fire-damaged lands and

ecosystems;• the role of science in developing and implementing fire management

programs;• the importance of communication and education internally and

externally; and• the critical need for regular, ongoing evaluation of policies and

procedures.

A number of the 1995 Federal Fire Policy statements were revised toreflect experiences since 1995 and to underscore the importance of key issues.These include:

• better recognition that Fire Management Plans identify and integrateall fire management and related activities within the context ofapproved land management plans;



• clearly stating that the management response to fire is based on thecircumstances surrounding the fire, not the source of ignition orlocation of the fire;

• clarifying that, following protection of human life, suppressionpriority decisions include considerations of human health andconsequences on communities rather than property; and

• clarifying the 1995 Federal Fire Policy on the Wildland UrbanInterface to recognize the role of wildland fire agencies in protectingstructures, but not suppressing fires in them.

Strategic Implementation Actions in Chapter 3 deal with:• Fire Management and Ecosystem Sustainability• Response to Wildland Fire• Wildland Urban Interface• Planning• Science• Workforce and Organization• Funding• Communication and Education• Program Management and Coordination

Appendix C contains the detailed explanations for all of the new policystatements and the recommended changes to the 1995 Federal Fire Policystatements. Appendix D contains a side-by-side listing of the 1995 Federal FirePolicy and the 2001 Federal Fire Policy. The Guiding Principles, Policy Statements,and Implementation Actions can be found in their entirety in Chapter 3.

Chapter 3 — 2001 Federal Wildland Fire Management Policy - 21

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The 2001 Federal Fire Policy comprises the following Guiding Principles anddiscreet policies. As a whole these Guiding Principles and policy statements guidethe philosophy, direction, and implementation of fire management planning,activities, and projects on federal lands. Many federal agencies conduct programsand activities not directly tied to management of lands, but which have programs oractivities that support or otherwise affect federal wildland fire management activities.These Guiding Principles and policy statements guide the direction andimplementation of those programs as well, to ensure consistency, coordination, andintegration of wildland fire management programs and related activities throughoutthe federal government.

Each agency should adopt the 2001 Federal Fire Policy as agency policy throughapplicable directives, manuals, and other systems as appropriate. All handbooks,guides, workbooks, and other documents associated with wildland fire managementare to reflect the 2001 Federal Fire Policy.

Non-federal agencies are encouraged to adopt and use the 2001 Federal FirePolicy in planning and implementing their fire management activities to promotecoordination, cooperation, and efficiency.

G U I D I N G P R I N C I P L E S

The following Guiding Principles are fundamental to the successfulimplementation of the 2001 Federal Fire Policy:

1. Firefighter and public safety is the first priority in every firemanagement activity.

2. The role of wildland fire as an essential ecological process and naturalchange agent will be incorporated into the planning process. Federalagency land and resource management plans set the objectives for the useand desired future condition of the various public lands.

3. Fire Management Plans, programs, and activities support land andresource management plans and their implementation.

RE V IEW A N D UP D A T E O F T H E 1995 FE D E R A L W ILD LA N D F IR E MA N A G E ME N T POL I C Y

22 - Chapter 3 — 2001 Federal Wildland Fire Management Policy

4. Sound risk management is a foundation for all fire managementactivities. Risks and uncertainties relating to fire management activities mustbe understood, analyzed, communicated, and managed as they relate to thecost of either doing or not doing an activity. Net gains to the public benefitwill be an important component of decisions.

5. Fire management programs and activities are economically viable,based upon values to be protected, costs, and land and resourcemanagement objectives. Federal agency administrators are adjusting andreorganizing programs to reduce costs and increase efficiencies. As part ofthis process, investments in fire management activities must be evaluatedagainst other agency programs in order to effectively accomplish the overallmission, set short- and long-term priorities, and clarify managementaccountability.

6. Fire Management Plans and activities are based upon the bestavailable science. Knowledge and experience are developed among allwildland fire management agencies. An active fire research programcombined with interagency collaboration provides the means to make thesetools available to all fire managers.

7. Fire Management Plans and activities incorporate public health andenvironmental quality considerations.

8. Federal, State, tribal, local, interagency, and international coordinationand cooperation are essential. Increasing costs and smaller work forcesrequire that public agencies pool their human resources to successfully dealwith the ever-increasing and more complex fire management tasks. Fullcollaboration among federal agencies and between the federal agencies andinternational, State, tribal, and local governments and private entities resultsin a mobile fire management work force available for the full range of publicneeds.

9. Standardization of policies and procedures among federal agencies isan ongoing objective. Consistency of plans and operations provides thefundamental platform upon which federal agencies can cooperate, integratefire activities across agency boundaries, and provide leadership forcooperation with State, tribal, and local fire management organizations.

2 0 0 1 F E D E R A L W I L D L A N D F I R E M A N A G E M E N T P O L I C Y

1. SAFETY

Firefighter and public safety is the first priority. All Fire Management Plans andactivities must reflect this commitment.



2. FIRE MANAGEMENT AND ECOSYSTEM SUSTAINABILITY

The full range of fire management activities will be used to help achieveecosystem sustainability, including its interrelated ecological, economic, and socialcomponents.


Fire, as a critical natural process, will be integrated into land and resourcemanagement plans and activities on a landscape scale, and across agency boundaries.Response to wildland fire is based on ecological, social, and legal consequences ofthe fire. The circumstances under which a fire occurs, and the likely consequences onfirefighter and public safety and welfare, natural and cultural resources, and values tobe protected dictate the appropriate management response to the fire.

4. USE OF WILDLAND FIRE

Wildland fire will be used to protect, maintain, and enhance resources and, asnearly as possible, be allowed to function in its natural ecological role. Use of firewill be based on approved Fire Management Plans and will follow specificprescriptions contained in operational plans.

5. REHABILITATION AND RESTORATION

Rehabilitation and restoration efforts will be undertaken to protect and sustainecosystems, public health, and safety, and to help communities protect infrastructure.

6. PROTECTION PRIORITIES

The protection of human life is the single, overriding priority. Setting prioritiesamong protecting human communities and community infrastructure, other propertyand improvements, and natural and cultural resources will be based on the values tobe protected, human health and safety, and the costs of protection. Once peoplehave been committed to an incident, these human resources become the highestvalue to be protected.


The operational roles of federal agencies as partners in the Wildland UrbanInterface are wildland firefighting, hazardous fuels reduction, cooperative preventionand education, and technical assistance. Structural fire suppression is theresponsibility of tribal, State, or local governments. Federal agencies may assist withexterior structural protection activities under formal Fire Protection Agreements thatspecify the mutual responsibilities of the partners, including funding. (Some federalagencies have full structural protection authority for their facilities on lands theyadminister, and may also enter into formal agreements to assist State and localgovernments with full structural protection.)

8. PLANNING

Every area with burnable vegetation must have an approved Fire ManagementPlan. Fire Management Plans are strategic plans that define a program to manage



wildland and prescribed fires based on the area’s approved land management plan.Fire Management Plans must provide for firefighter and public safety; include firemanagement strategies, tactics, and alternatives; address values to be protected andpublic health issues; and be consistent with resource management objectives,activities of the area, and environmental laws and regulations.

9. SCIENCE

Fire Management Plans and programs will be based on a foundation of soundscience. Research will support ongoing efforts to increase our scientific knowledgeof biological, physical, and sociological factors. Information needed to support firemanagement will be developed through an integrated interagency fire scienceprogram. Scientific results must be made available to managers in a timely mannerand must be used in the development of land management plans, Fire ManagementPlans, and implementation plans.

10. PREPAREDNESSAgencies will ensure their capability to provide safe, cost-effective fire

management programs in support of land and resource management plans throughappropriate planning, staffing, training, equipment, and management oversight.

11. SUPPRESSIONFires are suppressed at minimum cost, considering firefighter and public safety,

benefits, and values to be protected, consistent with resource objectives.

12. PREVENTIONAgencies will work together and with their partners and other affected groups

and individuals to prevent unauthorized ignition of wildland fires.

13. STANDARDIZATIONAgencies will use compatible planning processes, funding mechanisms, training

and qualification requirements, operational procedures, values-to-be-protectedmethodologies, and public education programs for all fire management activities.

14. INTERAGENCY COOPERATION AND COORDINATIONFire management planning, preparedness, prevention, suppression, fire use,

restoration and rehabilitation, monitoring, research, and education will be conductedon an interagency basis with the involvement of cooperators and partners.

15. COMMUNICATION AND EDUCATIONAgencies will enhance knowledge and understanding of wildland fire

management policies and practices through internal and external communication andeducation programs. These programs will be continuously improved through thetimely and effective exchange of information among all affected agencies andorganizations.

16. AGENCY ADMINISTRATOR AND EMPLOYEE ROLESAgency administrators will ensure that their employees are trained, certified, and

made available to participate in the wildland fire program locally, regionally, and



nationally as the situation demands. Employees with operational, administrative, orother skills will support the wildland fire program as necessary. Agency administratorsare responsible and will be held accountable for making employees available.

17. EVALUATIONAgencies will develop and implement a systematic method of evaluation to

determine effectiveness of projects through implementation of the 2001 Federal FirePolicy. The evaluation will assure accountability, facilitate resolution of areas ofconflict, and identify resource shortages and agency priorities.

I M P L E M E N T A T I O N A C T I O N S

INTRODUCTION

The following strategic Implementation Actions are key for the effectiveimplementation of the 2001 Federal Fire Policy. The bolded statements providebroad objectives or results for agency managers to accomplish. The narrativestatement following each bolded statement is designed to explain and clarify, notprovide specific additional tasks. Monitoring and evaluation of implementationshould focus on accomplishment of the broad objectives or results over time. TheseImplementation Actions are the highest priority. This list is not intended to excludeother strategic and tactical actions necessary to implement the 2001 Federal FirePolicy.

1. FIRE MANAGEMENT AND ECOSYSTEM SUSTAINABILITY

a. Develop a comprehensive, interagency strategy for fire management tohelp achieve ecosystem sustainability.

The relationship between fire management activities and other efforts to achieveecosystem sustainability is unclear. The USDA Forest Service developed a cohesivestrategy to accelerate fuels management on those public lands at high risk forsignificant negative impacts on ecological and human values. The Interior landmanagement agencies have developed strategies to increase fuels managementefforts. All of these efforts can be strengthened by the inclusion of other federal andState agencies involved in national fire management efforts (USGS, EPA, FEMA,NOAA, DOD, DOE) as we address long-term restoration of watersheds andlandscapes. Implementation of these existing strategies must be emphasized toaccelerate treatments. Further, these strategies must be coordinated with partners andother federal land management agencies.

b. Fire Management Plans and land management plans will appropriatelyincorporate mitigation, burned-area rehabilitation, and fuels reductionand restoration activities that contribute to ecosystem sustainability.

There is a need to more effectively and directly integrate fire managementactivities with other natural resource goals. For example, comprehensive restorationplans, addressing both short-term and long-term needs, should be designed for



implementation. Since noxious and invasive weeds are a significant problem in manyfire-dominated ecosystems, rapid response strategies should be established.


Base responses to wildland fires on approved Fire Management Plans andland management plans, regardless of ignition source or the location ofthe ignition.The management response to fires, regardless of source, must be based on the approved

Fire Management Plan. Fire Management Plans, based on the land management objectivesof the area, guide the appropriate response through criteria and prescriptions.Determination of appropriate response will include an evaluation of such factors as risks tofirefighter and public health and safety, weather, fuel conditions, threats, and values to beprotected. Fires in areas without approved Fire Management Plans, or with FireManagement Plans that are not consistent with the 2001 Federal Fire Policy, must besuppressed. Guidance for the development of strategic and operational plans, workforcetraining and qualifications, resource allocation and dispatch protocols, and other activitiesnecessary to prepare for and respond to wildland fires are to be consistent across agenciesand not based on the ignition source or location of the fire. Agency directives, manuals,handbooks, guides, and similar documents should be revised as necessary. Since 1995 thebudget structures for the Department of the Interior and USDA Forest Service firemanagement programs have been revised so that source of ignition is no longer a factor inresponse decisions. However, additional administrative or legal barriers may continue tomake it difficult to implement a single response system. Agencies should act to eliminate orminimize these barriers to facilitate effective implementation of the 2001 Federal Fire Policy.

A flow chart depicting what action will be taken after an ignition, regardless ofsource, is provided in Appendix F.


a. Accelerate and expand ongoing efforts, such as the FIREWISEprogram, to increase public awareness of the risks of building andliving in the Wildland Urban Interface.

Although public recognition and understanding of the Wildland Urban Interfacehas markedly improved since 1995, communities and homeowners are still fallingshort of taking sufficient action to mitigate fire risks.

b. Accelerate and expand efforts to identify Wildland Urban Interfaceareas that lack formal structural fire protection, and encourage Statesand local communities to form rural fire departments where noneexist.

Federal agencies have no legal authority on private land. Therefore, this effortmust be coordinated through State and local governments and with individualhomeowners.

4. PLANNING

Complete, or update, Fire Management Plans for all areas with burnablevegetation.



Fire Management Plans, based on underlying land use or resource managementplans, are the principal foundation for implementation of the 2001 Federal Fire Policy.High priority must be placed on completing Fire Management Plans. Agencies such asthe Departments of Defense and Energy that previously did not endorse or follow the1995 Federal Fire Policy should begin development of Fire Management Plans. Insome cases agencies may need to update, amend, or otherwise revise underlying landmanagement plans. However, the existence of obsolete land management plansshould not be reason for failure to complete or update Fire Management Plans. Theland managing agencies should continue to work with other agencies to ensure thatFire Management Plans consistently address the effects of fire management activitieson public health and on environmental quality.

5. SCIENCE

a. Continue to develop science programs to provide the foundation forland and Fire Management Plans and activities. These programs mustaddress the land and fire management information needs of landmanagers, conduct basic and applied research, transfer information toend users, and ensure that appropriate results are applied andimplemented.

The Joint Fire Science Program has made good initial efforts to meet fuelsmanagement information needs of fire managers. However, a broader effort isrequired to support all the science-related Action Items in the 1995 Report, and toimplement the 2001 Federal Fire Policy. Science activities should cover restoration andrehabilitation programs and the social dimensions of fire management. Apartnership between managers and research scientists is needed to develop clearprocedures for identifying information needs. Since not all future information needscan be anticipated, fire science programs should include both basic and appliedresearch, and address local as well as broad, nationwide needs. Critical to fire scienceprogram success are mechanisms to ensure that the information is transferred toland and fire managers in a usable form. Similarly, managers must ensure that landand Fire Management Plans and actions actively incorporate and apply the newinformation.

b. Develop coordinated databases for federal fire information thatsupport fire program development and implementation of the 2001Federal Fire Policy.

Systems to collect essential wildland fire data and information should bedeveloped and implemented to support internal and external program needs. Whileeach agency is responsible for collecting and reporting data, consistent systems,reporting thresholds and criteria, data fields, and terms are essential to assure thereliability and credibility of the information for its intended use. Other informationsources related to wildland fires (such as the wildland fire information collected bythe National Fire Incident Reporting System) should be reviewed to determinewhether that information (a) is applicable and appropriate for program needs, and(b) can and should be linked to programmatic databases.



6. WORKFORCE AND ORGANIZATION

a. Develop an interagency strategy for wildland fire workforcemanagement.

A national, interagency workload analysis is needed to determine the futureworkload and workforce skills mix necessary to accomplish the full range of firemanagement activities. Demographic information about the current organizationshould be used, along with initial attack requirements identified through agency fireplanning activities, to help develop this strategy.

b. Review the structure of fire management and fire suppressionorganizations.

Federal agencies, in cooperation with non-federal partners, need to review thestructure of their operational fire management organizations to ensure efficient,interagency implementation of the full range of fire management activities. Ofprincipal concern are organizations to manage large fires and organizations toaccomplish prescribed fire and other fuel treatment activities. These reviews willrequire a common approach among fire management agencies.

7. FUNDING

Provide full funding for fire management and associated programs toensure successful implementation of the 2001 Federal Fire Policy.The individual fire management agencies, the Administration, and the Congress

must work to develop and adopt annual budgets for fire management preparedness,fuels management activities, scientific support, post-fire stabilization andrehabilitation, and support for State and local cooperators. Continued levels offunding to support all aspects of the fire management, fuels management, andrelated activities will be required in Fiscal Year 2002 and future years in order tocontinue to implement the Report to the President and the 2001 Federal Fire Policy.Analyses by the two Departments indicate that funding for all aspects of firemanagement, fuels management, and related activities needs to grow substantially.Implementation of the Report to the President will substantially increase planning,environmental review, and Endangered Species Act consultation workloads, requiringincreased funding for agencies and organizations with those program responsibilities.

Adequate funding for agencies not historically considered fire managementagencies is also critical. Those with land management responsibilities—theDepartment of Defense, Department of Energy, and Bureau of Reclamation—donot have specific, stable, adequate funding sources to implement the 2001 FederalFire Policy. Agencies with supporting programs, such as the National WeatherService, the Environmental Protection Agency, and U.S. Geological Survey, mayrequire additional funding to support implementation of fire management, fuelsmanagement, and related activities.

Finally, increased federal support for non-federal organizations throughprograms such as the State and Private Forestry Program of the USDA ForestService and programs in the Department of the Interior to support rural firedistricts is critical to ensure that cooperating fire organizations are able to implementfire policy consistently.



8. COMMUNICATION AND EDUCATION

Develop a national, interagency communication and education programto enhance understanding of the fire management mission for bothinternal and external audiences.A national, interagency communication and education program requires that all

federal fire agencies, along with their partners and cooperators, design consistentmessages and strategies to communicate those messages. Both internal (all levels ofthe agencies) and external (public, non-federal organizations) audiences should betargeted. Agencies should develop and implement a communication and educationprogram in a joint, collaborative manner.

9. PROGRAM MANAGEMENT AND COORDINATION

a. Establish a mechanism for coordinated interagency andinterdisciplinary oversight of implementation of the 2001 Federal FirePolicy.

Successful implementation of 2001 Federal Fire Policy requires coordination,consistency, and agreement among five traditional fire management operatingagencies in two Departments, requires fire managers to forge new workingrelationships with other disciplines within those agencies, and requires the inclusionof agencies not traditionally integrated into wildland fire management activities.Although some interagency groups and committees exist to help facilitatecoordination, they do not include the full range of affected programs and often lackauthority to resolve differences.

A new mechanism for coordinated interagency and interdisciplinaryimplementation of the 2001 Federal Fire Policy is necessary to lead the broad arrayof agencies and programs in the future. The principal functions of such amechanism would be to:

• provide a forum for raising and resolving issues across agency anddisciplinary lines;

• provide strategic direction and leadership for overall implementation of the2001 Federal Fire Policy;

• provide oversight and evaluation of program effectiveness and success; and• provide a focal point for consolidating and articulating funding and

workforce requirements necessary to implement the 2001 Federal Fire Policy.

This mechanism must include the following features:• include all agencies with fire management or directly related programs;• ability to bring skills and resources together to reach common agreement on

interagency and interdisciplinary matters;• authority, either directly or through access to senior agency managers, to

resolve differences in a timely manner.

This mechanism could be based on a number of different models for cross-agency leadership and coordination. However, dedicated personnel responsible forthis function are essential.



b. Expand the regular and ongoing participation in fire managementprogram management and implementation to all federal agencies withfire-related capabilities and responsibilities.

Fire management has traditionally been the province of the USDA ForestService and the four principal land management agencies of the Department of theInterior. However, many other agencies also have varying degrees of landmanagement, regulatory, or other fire-related responsibilities, capabilities, andinterests. These include (but are not limited to) the Departments of Defense andEnergy, the Bureau of Reclamation, the National Oceanic and AtmosphericAdministration, the endangered species management programs of the NationalMarine Fisheries Service and the Fish and Wildlife Service, the EnvironmentalProtection Agency, the Federal Emergency Management Agency, the NaturalResources Conservation Service, and the U.S. Geological Survey. The participationand integration of these agencies in the fire management program needs to beexpanded at both the senior policy level and the operational level throughparticipation, as appropriate, in such organizations as the National WildfireCoordinating Group, and Geographic Area Coordinating Groups.

c. Improve coordination among all federal, State, tribal, and localorganizations.

Successful implementation of all aspects of fire management activities requiresimproved coordination among federal agencies and a variety of State, tribal, andlocal organizations. Many non-federal organizations, such as State regulatory bodies,have not usually been included in planning and program development activities.Other organizations with operational roles, such as State and local emergencymanagement agencies, have not been integrated into fire suppression activities.Coordination can be improved through existing organizations such as GeographicArea Coordinating Groups and Multi-Agency Coordinating Groups. In other cases,new or ad hoc methods of coordination may be appropriate.

d. Standardize and implement operational policies and procedures.Develop and use, to the maximum extent possible, standardized operational

procedures for wildland fire management agencies. Establish and implement a clear,concise system of accountability based on standard job performance requirements.

e. Develop a national plan for weather services that provides products,standards, and services to support the full range of responses requiredby both federal and State wildland fire management agencies.

A national plan should be developed that articulates the weather products,standards, and services needed to support the entire spectrum of wildland fireresponses, and the best means of meeting these requirements. The plan shouldspecifically address recommendations from the NWCG, the action items of the 1995Federal Fire Policy, and support for meteorological services for State, tribal, and localorganizations involved in wildland fire management. The plan should resolve theissue of providing non-federal organizations with meteorological services needed tosupport the full range of fire management responses.



The Office of the Federal Coordinator for Meteorology is uniquely qualified todevelop such a plan. That office can establish a process for coordinating with firemanagement agencies and the NWS, and develop a plan that lays out options toassure that adequate weather services are available to both federal and non-federalfire management agencies.

10. EVALUATION

Establish clear mechanisms for evaluating the 2001 Federal Fire Policyand its implementation.Evaluation of the 2001 Federal Fire Policy and its implementation will require

clear performance measures, mechanisms for collecting and analyzing data, and thetracking of accomplishments. All of these should be developed and used on aninteragency, interdisciplinary basis.

The underlying 2001 Federal Fire Policy should be evaluated on a 3 to 5 yearcycle, without waiting for specific fire events as has happened in the past.

Evaluation of policy implementation should include both headquarters and fieldorganizations and activities, and their effectiveness in meeting the performancemeasures. Evaluations should be linked to each agency’s existing program and projectevaluation process. However, the interagency, interdisciplinary aspects of the 2001Federal Fire Policy may require supplemental or unique evaluation activities.

11. 1995 FEDERAL FIRE POLICY ACTION ITEMS

Complete implementation of Action Items recommended from the 1995Report in accordance with the 2001 Federal Fire Policy and theImplementation Actions in this Review and Update.The 1995 Report contained over 80 specific Action Items to implement the

recommended policy. Many of these have been completed and have beenincorporated into normal agency fire management programs and activities. Manyhave been partially implemented. A few have not been implemented and a fewothers, upon further review and analysis, are no longer appropriate or relevant. Ingeneral, implementation has been least successful when consistency andcompatibility across agencies was required or when integration of fire with otherdisciplines was required. Appendix E contains a detailed listing of each Action Itemand the status of implementation. Included is a recommendation for future action.Continued attention to full implementation of the concepts and principles of thegreat majority of the Action Items from 1995 remains critical for implementation ofthe 2001 Federal Fire Policy. In many cases, the specific language of an Action Itemis less important than accomplishing the overall objective of the item. Therecommended future action for each item in Appendix E includes discussion aboutaspects requiring special attention as well as noting areas in common with otherImplementation Actions in this Review and Update.



APPENDIX A: Bibliography - 33

CC HH AA PP TT EE RR 44 —— AA PP PP EE NN DD II CC EE SS

AA PP PP EE NN DD II XX AA :: BB II BB LL II OO GG RR AA PP HH YY

Bartos, D. L., W. F. Mueggler, and R. B.Campbell, Jr. 1991. Regeneration of aspenby suckering on burned sites in westernWyoming. U.S. Department of Agriculture,Forest Service Research Paper INT-448.

Cerro Grande Prescribed Fire (May 4-8, 2000)Investigation Report. Fire InvestigationTeam, National Interagency Fire Center,Boise, ID. May 18, 2000. 26p.

Cerro Grande Prescribed Fire. Independentreview board report. State of Florida,Division of Forestry; U.S. Department ofthe Interior, Bureau of Land Management;U.S. Department of Agriculture, ForestService; White Mountain Apache Tribe.May 26, 2000. 15p.

Clements, F. E. 1916. Plant succession: ananalysis of the development of vegetation.Carnegie Institute Publication 242.Washington, D.C.

Collins, S. L., and L. L. Wallace, editors. 1990.Fire in North American tallgrass prairies.University of Oklahoma Press, Norman,Oklahoma, USA.

Cost Containment on Large Fires: Efficientutilization of wildland fire suppressionresources. National Association of StateForesters, Forest Fire ProtectionCommittee. July 1, 2000. 36p.

Federal Wildfire Activities. Current strategyand issues needing attention. UnitedStates General Accounting Office. August1999. 35p.

Federal Wildland Fire Management Policy &Program Review. 1995. Final Report –December 18, 1995. U.S. Department ofthe Interior; U.S. Department ofAgriculture. 45p.

Ferry, G. W., R. G. Clark, R. E. Montgomery,R. W. Mutch, W. P. Leenhouts, and G.Thomas Zimmerman. 1995. Altered fireregimes within fire-adapted ecosystems.Pages 222-224 in E.T. LaRoe, G. S. Farris,C. E. Puckett, P. D. Doran, and M. J. Mac,editors. Our living resources. U.S.Department of the Interior, NationalBiological Service, Washington, D.C., USA.

Fire Management. Lessons learned from theCerro Grande (Los Alamos) Fire. GAO.July 20, 2000. 15p.

Fire Suppression Costs on Large Fires. Areview of the 1994 fire season. USDAForest Service. August 1, 1995. 55p.

Glickman, Dan, and Bruce Babbitt. 2000.Managing the impact of wildfires oncommunities and the environment. AReport to the President in response to thewildfires of 2000. U.S. Department ofAgriculture and U.S. Department of theInterior. 34p.

Hardy, C. C. D. L. Bunnell, J. P. Menakis, K.M. Schmidt, D. G. Long, D. G.Simmerman, and C. M. Johnson. 1999.Coarse-scale spatial data for wildland fireand fuel management. USDA ForestService, Rocky Mountain Research Station,Fire Sciences Laboratory, Missoula, Mt.USDA Forest Service, Fire and AviationManagement, National Interagency FireCenter, Boise, Id.http://www.fs.fed.us/fire/fuelman/.


34 - APPENDIX A: Bibliography

Henderson, R. A., and E. J. Epstein. 1995.Oak savannas in Wisconsin. Pages 230-232in E.T. LaRoe, G. S. Farris, C. E. Puckett,P. D. Doran, and M. J. Mac, editors. Ourliving resources. U.S. Department of theInterior, National Biological Service,Washington, D.C.

Hessl, A., and S. Spackman. 1995. Effects offire on threatened and endangered plants:an annotated bibliography. U.S.Department of Interior, NationalBiological Service, Information andTechnology Report 2.

Heusser, C. 1979. Vegetational history of thepine barrens. Pages 215-312 in R.T.Forman, editor. Pine Barrens: ecosystemand landscape. Academic, New York, NewYork, USA.

Kendall, K. C. 1995. Whitebark pine: anecosystem in peril. Pages 228-230 in E.T.LaRoe, G. S. Farris, C. E. Puckett, P. D.Doran, and M. J. Mac, editors. Our livingresources. U.S. Department of the Interior,National Biological Service, Washington,D.C.

Leenhouts, B. 1998. Assessment of biomassburning in the conterminous UnitedStates. Conservation Ecology [online] 2(1):1. Available from the Internet. URL:http://www.consecol.org/vol2/iss1/art1.

Leenhouts, B. 2000. A comparison of historicand contemporary wildland fire andanthropogenic emissions. Fire Conference2000. November 27 - December 1, 2000.San Diego, CA

Lowden Ranch Prescribed Fire Review. FinalReport. U.S. Department of the Interior,Bureau of Land Management. July 22,1999. Lewiston, CA. 34p.

McCool, S. F., K. Guthrie, and J. K. Smith.2000. Building consensus: legitimate hopeor seductive paradox? USDA FS ResearchPaper RMRS-RP-25, Rocky MountainResearch Station, Ft. Collins, Co. 14p.

Policy Implications of Large FireManagement: A strategic assessment offactors influencing costs. USDA ForestService. January 21, 2000. 43p.

Sadler Fire Entrapment Investigation. U.S.Department of the Interior; Bureau ofLand Management. August 9, 1999. 69p.

Wildland and Prescribed Fire ManagementPolicy: Implementation Procedures andReference Guide. US Department of theInterior and USDA Forest Service. August1998. 82p.

RE V IEW A N D UP D A T E O F T H E 1995 FE D E R A L W ILD LA N D F IR E MA N A G E ME N T POLI C Y

APPENDIX B: Glossary and List of Acronyms - 35

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GLOSSARY

1995 Federal Fire Policy—1995 FederalWildland Fire Management Policy

1995 Report—1995 Federal Wildland FireManagement Policy and Program Review

2001 Federal Fire Policy—2001 FederalWildland Fire Management Policy

Agencies—Federal agencies that have directfire management or land managementresponsibilities or that have programs andactivities that support fire managementactivities.

Agency Administrator—The officialresponsible for the management of ageographic unit or functional area.

Appropriate Management Response —theresponse to a wildland fire is based on anevaluation of risks to firefighter and publicsafety, the circumstances under which thefire occurs, including weather and fuelconditions, natural and cultural resourcemanagement objectives, protectionpriorities, and values to be protected. Theevaluation must also include an analysis ofthe context of the specific fire within theoverall local, geographic area, or nationalwildland fire situation.

Burned Area Rehabilitation—the full rangeof post-fire activities to rehabilitate andrestore fire damaged lands, includingprotection of public health and safety.

Cooperators—Federal, state, and localagencies and Indian tribes that participatein planning and conducting firemanagement projects and activities.

Ecosystem Sustainability—the capacity tomaintain ecosystem health, productivity,diversity, and overall integrity, in the longrun, in the context of human activity anduse.

Fire Management Activities—include fireplanning, fire management strategies,tactics, and alternatives, prevention;preparedness, education, and addresses therole of mitigation, post-fire rehabilitation,fuels reduction, and restoration activities infire management

Fire Management Plan—strategic plans thatdefine a program to manage wildland firesbased on an area’s approved landmanagement plan. Fire ManagementPlans must address a full range of firemanagement activities that supportecosystem sustainability, values to beprotected, protection of firefighter andpublic safety, public health andenvironmental issues, and must beconsistent with resource managementobjectives and activities of the area.

Full range of fire managementactivities—see Fire ManagementActivities.

Geographic Area Coordination Center(GACC)—interagency regional operationalcenters for fire resource coordination andmobilization.

Geographic Area Coordinating Group(GACG)—interagency regional firemanagement bodies.

Initial Attack—the aggressive response to awildland fire based on values to beprotected, benefits of response, andreasonable cost of response.

Interagency—coordination, collaboration,communication among cooperatingagencies.

Intergovernmental—coordination,collaboration, communication betweenfederal agencies, Indian tribes, and foreigngovernments.


36 - APPENDIX B: Glossary and List of Acronyms

MAC Group—Multi-Agency CoordinatingGroup; national, regional, or localmanagement groups for interagency,intergovernmental planning coordination,and operations leadership.

NWCG—National Wildfire CoordinatingGroup; the NWCG is an interagency,intergovernmental body that establishesoperational fire management standardsand procedures such as qualification andcertification protocols, allocation orresources protocols, equipment standards,training programs.

Partners—all agencies and organizations thatengage in joint decision making withfederal agencies in planning andconducting fire management projects andactivities.

Prescribed Fire—any fire ignited bymanagement actions to meet specificobjectives. Prescribed fires are conductedin accordance with prescribed fire plans.

Prescribed Fire Plan—a plan for eachprescribed fire. Plans are documentsprepared by qualified personnel, approvedby the agency administrator, and includecriteria for the conditions under which thefire will be conducted (a prescription).

Prescription—measurable criteria that definethe conditions under which a prescribedfire will be ignited, guide selection ofappropriate management responses, andindicate other required actions.Prescription criteria may include safety,economic, public health, andenvironmental, geographic, administrative,social, or legal considerations.

Report to the President—Glickman, Dan,and Bruce Babbitt. 2000. Managing theimpact of wildfires on communities andthe environment. A Report to thePresident in response to the wildfires of2000. U.S. Department of Agriculture andU.S. Department of the Interior. 34p.

Review and Update—Review and Update ofthe 1995 Federal Wildland FireManagement Policy.

Values to be Protected—Include property,structures, physical improvements, naturaland culture resources, communityinfrastructure, and economic,environmental, and social values.

Wildland Fire—any non-structural fire thatoccurs on wildland.

Wildland Urban Interface—defined as theline, area, or zone where structures andother human development meet orintermingle with undeveloped wildland orvegetative fuels.

RE V IEW A N D UP D A T E O F T H E 1995 FE D E R A L W ILD LA N D F IR E MA N A G E ME N T POLI C Y

APPENDIX B: Glossary and List of Acronyms - 37

LIST OF ACRONYMS USED

BIA – Bureau of Indian Affairs, Departmentof the Interior

BLM – Bureau of Land Management,Department of the Interior

BOR – Bureau of Reclamation, Departmentof the Interior

DOC – U.S. Department of Commerce

DOD – U.S. Department of Defense

DOE – U.S. Department of Energy

DOI – U.S. Department of the Interior

EPA – U.S. Environmental Protection Agency

FEMA – Federal Emergency ManagementAgency

FWS – U.S. Fish and Wildlife Service,Department of the Interior

GACC – Geographic Area CoordinationCenter

GACG – Geographic Area CoordinatingGroup

IMET – Incident Meteorologist

ISO – Insurance Service Organization

JFSP – Joint Fire Science Program

MAC – Multi-Agency Coordinating Group

NASF – National Association of StateForesters

NMFS – National Marine Fisheries Service,Department of Commerce

NOAA – National Oceanic and AtmosphericAdministration

NPS – National Park Service, Department ofthe Interior

NWCG – National Wildfire CoordinatingGroup

NWS – National Weather Service,Department of Commerce

TWT – Training Working Team (NWCG)

USDA – U.S. Department of Agriculture

USDA Forest Service – U.S. Department ofAgriculture, Forest Service

USFS – U.S. Forest Service, Department ofAgriculture

USGS – U.S. Geological Survey, Departmentof the Interior

WFSA – Wildland Fire Situation Analysis


38 - APPENDIX B: Glossary and List of Acronyms

APPENDIX C: Changes to the Guiding Principles and 1995 Federal Fire Policy - 39

AA PP PP EE NN DD II XX CC :: CC HH AA NN GG EE SS TT OO TT HH EE GG UU II DD II NN GG PP RR II NN CC II PP LL EE SS AA NN DD11 99 99 55 FF EE DD EE RR AA LL FF II RR EE PP OO LL II CC YY ,, WW II TT HH RR AA TT II OO NN AA LL EE FF OO RR CC HH AA NN GG EE SS

GUIDING PRINCIPLES

Rewrite the existing guiding principle on coordination and cooperation to add“international” coordination and cooperation.

POLICY

New Policies

a. Ecosystem Sustainability• The full range of fire management activities will be used to

achieve ecosystem sustainability including its interrelatedecological, economic, and social components.

Rationale:: The concept of ecosystem sustainability was not fully considered inthe original concept of fire management, as incorporated in the 1995 Federal FirePolicy. Using the full range of fire management activities is essential for achievingecosystem sustainability, including ecological sustainability and socio-economicconsiderations. Under this policy, fuels management activities will be designed tosupport ecological and socio-economic sustainability.

b. Rehabilitation and Restoration• Rehabilitation and restoration efforts will be undertaken to

protect, and sustain ecosystems, public health, safety, and tohelp communities protect infrastructure.

Rationale: Rehabilitation and restoration activities are essential components ofachieving ecosystem sustainability when areas are not expected to recover throughnatural processes Protection of community infrastructure, public health and safety,endangered species habitat, and other resource values must be considered indeveloping rehabilitation and restoration strategies and plans.

c. Science• Fire management plans and programs will be based on a

foundation of sound science. Research will support ongoingefforts to increase our scientific knowledge of biological,physical, and sociological factors. Information needed tosupport fire management will be developed through anintegrated interagency fire science program. Scientific resultsmust be made available to managers in a timely manner andmust be used in the development of land management plans,Fire Management Plans, and implementation plans.


40 – APPENDIX C: Changes to the Guiding Principles and 1995 Federal Fire Policy

Rationale: Scientific information is essential to develop and implement landand fire management programs and to evaluate their potential benefits andconsequences. Information will be developed through an interagency, integrated firescience program. The fire science program should include federal science agencies,academic institutions, and independent research groups. The program needs tosupport ongoing efforts to increase our scientific knowledge of biological, physical,and sociological factors. Science organizations must produce tangible, accessible,and useful research products that can be incorporated in Fire Management Plans andprograms. It is incumbent on fire managers to actively incorporate and implementthe results of scientific research.

d. Communication and Education• Agencies will enhance knowledge and understanding of

wildland fire management policies and practices throughinternal and external communication and education programs.These programs will be continuously improved through thetimely and effective exchange of information among allaffected agencies and organizations.

Rationale: The 1995 Federal Fire Policy is not fully understood by internal andexternal audiences. Shortfalls exist in disseminating the information and integratingthe policy into affected disciplines needed to implement the policy. The addition ofmore cooperating agencies into the wildland fire management mission makescoordinated and enhanced communication programs essential.

e. Evaluation• Agencies will systematically evaluate the effectiveness of

projects through implementation of the 2001 Federal WildlandFire Management Policy. The evaluation will assureaccountability, facilitate resolution of areas of conflict, andidentify resource shortages and agency priorities.

Rationale: There is no systematic method or program for evaluating federal firepolicy and its implementation, especially across agency and program or disciplineboundaries. No performance measures or other means exist to determine the statusof implementation or the effectiveness of the policies. The review of the 1995Federal Fire Policy found substantial actions that were not completed. There is noongoing or established process for tracking status of policy implementation withinor among agencies.

Modifications to the 1995 Federal Fire Policy Statements

These are explanations of changes to the 1995 Federal Fire Policy. The full textof the original 1995 and the new 2001 statements are in Appendix D.

a. Safety: No change.

b. Planning:


APPENDIX C: Changes to the Guiding Principles and 1995 Federal Fire Policy - 41

Rationale: This policy statement was changed to clarify the role and nature ofFire Management Plans as the fundamental strategic documents, based on land useplans, to guide the full range of fire management related activities in a unit or area.Fire Management Plans are supplemented by operational plans such as preparednessplans, dispatch plans, prescribed fire plans, and prevention plans. Resourcemanagement objectives and activities addressed in Fire Management Plans includeactivities to restore and sustain ecosystems or to protect communities or publicsafety. Fire Management Plans must address concerns and discuss consequences forair and water quality, endangered species, and similar issues. Fire Management Plansshould be developed and implemented across agency boundaries to ensure consistentapproaches to similar conditions.

c. [Response to] Wildland Fire:Rationale: The policy statements for Wildland Fire and Use of Fire were

modified to more clearly distinguish between the two. The Wildland Fire policystatement was re-titled as Response to Wildland Fire and clarifies and emphasizesthat the context or circumstances of the fire are to dictate the appropriate response,based on an approved Fire Management Plan. This policy is intended to minimizethe use of different personnel, qualification systems, dispatch and resource allocationprotocols, and so on for different “types” of fire. Rather, emphasis is on pre-planning by agencies to determine the appropriate management response to theoccurrence of fire, regardless of ignition source or location. The term “be based onbest available science” was dropped from this policy statement since a new policystatement on science has been added.

d. Use of [Wildland] Fire:Rationale: The use of Fire Policy Statement was re-titled to the Use of

Wildland Fire. Along with the above change in Wildland Fire, this policy statementnow clarifies and emphasizes the critical importance of Fire Management Plans andoperational plans in determining the appropriate response to a fire, regardless of itssource of ignition or location.

e. Preparedness:Rationale: This statement was revised to include a reference to management

oversight. There is no process for ongoing integrated, interagency oversight andmonitoring of preparedness activities. This change clarifies and emphasizes theimportance of oversight and monitoring to ensure that fire managementpreparedness activities are appropriate, especially across agency lines.

f. Suppression: No change.

g. Prevention:Rationale: This statement was changed to clarify the intent of the 1995 Federal

Fire Policy, not to change it substantively. The addition of the word “partners”makes the revised policy statement more inclusive.

h. Protection Priorities:Rationale: This policy statement was revised to clarify policy related to human

health and protection of structures. The 1995 Federal Fire Policy statement on


42 – APPENDIX C: Changes to the Guiding Principles and 1995 Federal Fire Policy

protection priorities provides a solid framework for decision making in firesituations. Conflicting protection priorities are resolved through the Wildland FireSituation Analysis (WFSA) and through the process of allocating resources at thegeographic and local levels. However, two significant protection considerations arenot specifically recognized in the 1995 Federal Fire Policy. First, human health,including the potential effects of smoke, is not explicitly considered in either theWFSA process or the process for allocating resources. Second, the 1995 Federal FirePolicy does not distinguish between the concept of property and the concept ofcommunity and community infrastructure. Recent experience has dramaticallydemonstrated the threat that uncontrolled wildland fire poses to humancommunities. While property may simply represent isolated structures, communitiesand their associated infrastructure are the social and economic fabric that supportslife in rural areas. However, the primary responsibility for protecting privateproperty and rural communities lies with individual property owners and localgovernments. This responsibility is usually achieved through proactive pre-fireactions such as those promoted in the FIREWISE Communities program.

i. Interagency Cooperation:Rationale: This policy statement was revised to highlight education, prevention,

restoration, and rehabilitation in interagency cooperation. This highlights theimportance of doing prevention and education initiatives in an interagency,collaborative environment.

j. Standardization: No change.

k. Economic Efficiency: DroppedRationale: This statement was dropped because it duplicated a Guiding Principle.

l. Wildland Urban Interface:Rationale: This statement was changed to clarify the 1995 Federal Fire Policy,

not to change it substantively. The revised policy more accurately distinguishesbetween the terms “structure protection” and “structure suppression.”

m. [Agency] Administrator and Employee Roles:Rationale: This statement was changed to recognize that wildland fire

management is not the sole responsibility of dedicated fire management personnel.In the past in federal land management agencies, wildland fire activities tookprecedence over all agency functions and activities except the safeguarding of humanlife. The notion that a broad cross-section of employees need to be trained, certifiedand available for wildland fire assignment has gradually diminished over time, bothon the part of Agency Administrators and employees themselves. Further, becauseof the diminishing federal workforce, the need to mutually support each other forwildland fire activities—locally, regionally and nationally—is increasingly important.The intent of the policy is to require every employee to be available to supportwildland fire if the situation demands. Also, the intent is to strike a common-sensebalance between requiring every employee of any agency to be trained, certified, andavailable for wildland fire assignment, and the notion that only fire management personnelhave any responsibility to respond to wildland fire activities.

APPENDIX D: Tabular Crosswalk - 43

AAPPPPEENNDDIIXX DD:: TTAABB UU LL AARR CCRR OO SS SS WW AALL KK BBEE TT WW EE EE NN TT HHEE11999955 AANNDD 22000011 FFEE DDEE RR AALL FFII RREE PPOO LL II CC II EE SS

FEDERAL WILDLAND FIRE POLICIES

POLICY ELEMENT 1995 POLICY 2001 POLICYSafety Firefighter and public safety is the first

priority. All Fire Management Plansand activities must reflect thiscommitment.

Firefighter and public safety is the firstpriority. All Fire Management Plans andactivities must reflect this commitment.

EcosystemSustainability

--- The full range of fire managementactivities will be used to achieveecosystem sustainability including itsinterrelated ecological, economic, andsocial components.

Response toWildland Fire

Fire, as a critical natural process, will beintegrated into land and resourcemanagement plans and activities on alandscape scale, across agencyboundaries, and will be based uponbest available science. All use of firefor resource management requires aformal prescription. Managementactions taken on wildland fires will beconsistent with approved FireManagement Plans.

Fire, as a critical natural process, will beintegrated into land and resourcemanagement plans and activities on alandscape scale, and across agencyboundaries. Response to wildland firesis based on ecological, social and legalconsequences of the fire. Thecircumstances under which a fire occurs,and the likely consequences onfirefighter and public safety and welfare,natural and cultural resources, and valuesto be protected dictate the appropriateresponse to the fire.

Use of WildlandFire

Wildland fire will be used to protect,maintain, and enhance resources and,as nearly as possible, be allowed tofunction in its natural ecological role.

Wildland fire will be used to protect,maintain, and enhance resources and, asnearly as possible, be allowed to functionin its natural ecological role. Use of firewill be based on approved FireManagement Plans and will followspecific prescriptions contained inoperational plans.

Rehabilitation andRestoration

--- Rehabilitation and restoration effortswill be undertaken to protect and sustainecosystems, public health, safety, and tohelp communities protect infrastructure.


44 - APPENDIX D: Tabular Crosswalk

POLICY ELEMENT 1995 POLICY 2001 POLICYProtectionPriorities

Protection priorities are (1) human lifeand (2) property and natural andcultural resources. If it becomesnecessary to prioritize betweenproperty and natural and culturalresources, this is done based on relativevalues to be protected, commensuratewith fire management costs. Oncepeople have been committed to anincident, these resources become thehighest value to be protected.

The protection of human life is thesingle, overriding suppression priority.Setting priorities among protectinghuman communities and communityinfrastructure, other property andimprovements, and natural and culturalresources will be done based on thevalues to be protected, human healthand safety, and the costs of protection.Once people have been committed to anincident, these human resources becomethe highest value to be protected.

Wildland UrbanInterface

The operational role of federalagencies as a partner in the WildlandUrban Interface is wildland firefighting,hazard fuel reduction, cooperativeprevention and education, and technicalassistance. Structural fire protection isthe responsibility of tribal, State, andlocal governments. Federal agenciesmay assist with exterior structuralsuppression activities under formal FireProtection Agreements that specify themutual responsibilities of the partners,including funding. (Some federalagencies have full structural protectionauthority for their facilities on landsthey administer and may also enter intoformal agreements to assist State andlocal governments with full structuralprotection.)

The operational role of federal and Stateagencies as partners in the WildlandUrban Interface are wildland firefighting,hazard fuels reduction, cooperativeprevention and education, and technicalassistance. Structural fire suppression isthe responsibility of tribal., State, orlocal governments. Federal agencies mayassist with exterior structural protectionactivities under formal Fire ProtectionAgreements that specify the mutualresponsibilities of the partners, includingfunding. (Some federal agencies havefull structural protection authority fortheir facilities on lands they administerand may also enter into formalagreements to assist State and localgovernments with full structuralprotection.)

Planning Every area with burnable vegetationmust have an approved FireManagement Plan. Fire ManagementPlans must be consistent withfirefighter and public safety, values tobe protected, and land and resourcemanagement plans and must addresspublic health issues. Fire ManagementPlans must also address all potentialwildland fire occurrences and includethe full range of fire managementactions.

Every area with burnable vegetationmust have an approved FireManagement Plan. Fire ManagementPlans are strategic plans that define aprogram to manage wildland andprescribed fires based on the area’sapproved land management plan. Firemanagement plans must provide forfirefighter and public safety, include firemanagement strategies, tactics, andalternatives; address values to beprotected and public health issues; andbe consistent with resource managementobjectives, activities of the area, andenvironmental laws and regulations.


APPENDIX D: Tabular Crosswalk - 45

POLICY ELEMENT 1995 POLICY 2001 POLICYScience --- Fire management plans and programs

will be based on a foundation of soundscience. Research will support ongoingefforts to increase our scientificknowledge of biological, physical, andsociological factors. Information neededto support fire management will bedeveloped through an integratedinteragency fire science program.Scientific results must be made availableto managers in a timely manner andmust be used in the development ofland management plans, firemanagement plans, and implementationplans.

Preparedness Agencies will ensure their capability toprovide safe, cost-effective firemanagement programs in support ofland and resource management plansthrough appropriate planning, staffing,training, and equipment.

Agencies will ensure their capability toprovide safe, cost-effective firemanagement programs in support ofland and resource management plansthrough appropriate planning, staffing,training, equipment, and managementoversight.

Suppression Fires are suppressed at minimum cost,considering firefighter and publicsafety, benefits, and values to beprotected, consistent with resourceobjectives.

Fires are suppressed at minimum cost,considering firefighter and public safety,benefits, and values to be protected,consistent with resource objectives.

Prevention Agencies will work together and withother affected groups and individualsto prevent unauthorized ignition ofwildland fires.

Agencies will work together and withtheir partners and other affected groupsand individuals to prevent unauthorizedignition of wildland fires.

Standardization Agencies will use compatible planningprocesses, funding mechanisms,training and qualification requirements,operational procedures, values-to-be-protected methodologies, and publiceducation programs for all firemanagement activities.

Agencies will use compatible planningprocesses, funding mechanisms, trainingand qualification requirements,operational procedures, values-to-be-protected methodologies, and publiceducation programs for all firemanagement activities.

InteragencyCooperation

Fire management planning,preparedness, suppression, fire use,monitoring, and research will beconducted on an interagency basis withthe involvement of all parties.

Fire management planning,preparedness, prevention, suppression,fire use, restoration and rehabilitation,monitoring, research, and education willbe conducted on an interagency basiswith the involvement of cooperatorsand partners.


46 - APPENDIX D: Tabular Crosswalk

POLICY ELEMENT 1995 POLICY 2001 POLICYCommunicationand Education

--- Agencies will enhance knowledge andunderstanding of wildland firemanagement policies and practicesthrough internal and externalcommunication and education programs.These programs will be continuouslyimproved through the timely andeffective exchange of informationamong all affected agencies andorganizations.

AgencyAdministrator andEmployee Roles

Employees who are trained andcertified will participate in the wildlandfire program as the situation demands;employees with operational,administrative, or other skills willsupport the wildland fire program asneeded. Administrators are responsibleand will be accountable for makingemployees available.

Agency administrators will ensure thattheir employees are trained, certified andmade available to participate in thewildland fire program locally, regionally,and nationally as the situation demands.Employees with operational,administrative, or other skills willsupport the wildland fire program asnecessary. Agency administrators areresponsible and will be held accountablefor making employees available.

Evaluation --- Agencies will develop and implement asystematic method of evaluation todetermine effectiveness of projectsthrough implementation of the 2001Federal Wildland Fire ManagementPolicy. The evaluation will assureaccountability, facilitate resolution ofareas of conflict, and identify resourceshortages and agency priorities.

EconomicEfficiency

Fire management programs andactivities will be based on economicanalyses that incorporated commodity,non-commodity, and social values.

---

APPENDIX E: Disposition of 1995 Action Items - 47

AA PP PP EE NN DD II XX EE :: DD II SS PP OO SS II TT II OO NN OO FF 11 99 99 55 AA CC TT II OO NN II TT EE MM SS

Note: Continued attention to full implementation of the concepts and principles of the greatmajority of the action items from the 1995 Report remains critical for implementation of the2001 Federal Fire Policy. The recommended disposition for each item in this Appendix includesdiscussion about aspects requiring special attention as well as noting areas in common withspecific Implementation Actions in the Review and Update.

ACTION ITEM FROM 1995 REPORT STATUSRECOMMENDED

DISPOSITION

ROLE OF FIRE IN RESOURCE MANAGEMENT

01 Use a compatible fire managementplanning system that recognizesboth fire use and fire protection asinherent parts of natural resourcemanagement; this system willensure adequate fire suppressioncapabilities and support firereintroduction efforts.

Agencies have made someprogress in implementingthis item, but significantwork remains. Due tochanges in agency missionsand organizations, nosingle interagency system isanticipated.

Implementation is anongoing process.Agencies must continueto pursue developmentand application ofcompatible firemanagement planningsystems. See alsoImplementation Action1b.

02 Develop Fire Management Plansfor all areas subject to wildlandfires. These plans will useinformation about fire regimes,current conditions, and landmanagement objectives as a basisto develop fire management goalsand objectives; address allpotential wildland fire occurrencesand include a full range of firemanagement actions; use newknowledge and monitoring resultsto revise fire management goals,objectives, and actions; and belinked closely to land and resourcemanagement plans.

Agencies are updatingplans; however, asignificant number of plansremain out of date orinconsistent with the 1995Federal Fire Policy. Insome cases underlying landmanagement plans requirerevisions before firemanagement plans can befully written or revised.

See ImplementationAction 1b.Implementation is anongoing process. FireManagement Plans thatimplement Federal FirePolicy must be completedas soon as possible. Allland managementagencies should place ahigh priority oncompletion of theseplans. If necessary, landmanagement plans shouldbe updated, revised, oramended to allow fullimplementation ofFederal Fire Policy.


48 - APPENDIX E: Disposition of 1995 Action Items


DISPOSITION

03 Develop research programs thatprovide a sound scientific basis forthe integration of wildland fireinto land-use and resourcemanagement.

The Forest Service-InteriorJoint Fire SciencesProgram (JFSP) representssignificant progress inmaking scientificinformation available tosupport the fuels program.The Fiscal Year 2001appropriations bill includesadditional funding for theJFSP to address post-firerehabilitation andrestoration and firemanagement issues.

Science and researchprograms in agenciessuch as the U.S.Geological Survey andthe USDA Forest Serviceshould continue to beintegrated into the federalwildland fire managementcommunity. Futureresearch should includesocial issues such asindividual andorganizationalpsychology. See alsoImplementation Action5a.

04 Create a system for coordinationand cooperation among landmanagers and regulators thatexplores options within existinglaws to allow for the use of fire toachieve goals of ecosystem healthwhile at the same time protectingindividual components of theenvironment, human health, andsafety. This system will allow forearly collaboration during theprocess of developing new landmanagement plans and provide amechanism for incorporatinginput as existing plans areimplemented or revised; andencourage land managers andregulators to enter intoagreements that set forth theactions each will take before andduring the time fire isreintroduced in their area ofresponsibility.

No formal system(s) havebeen created. However,there have been someopportunities forcoordination andcooperation such as theWestern Regional AirPartnership and thedevelopment of EPA’sInterim Air Quality Policyon Wildland andPrescribed Fires. Some adhoc coordination andcooperation has occurredat Geographic Areas andother locations.

Implementation is anongoing process.Continue to improve thecoordination andcooperation between theland managing agenciesand regulators,particularly in thedevelopment of plansrelated to firemanagement. Landmanaging agencies havean affirmativeresponsibility to involveother agenciescollaboratively inplanning activities. Seealso ImplementationAction 1b.




DISPOSITION

05 Continue ongoing efforts tojointly develop compatible,ecosystem-based, multiple scale,interagency land managementplans that involve all interestedparties and facilitate adaptivemanagement. This process willfully integrate ecological conceptsthat consider long-term dynamicsand cross agency boundaries;effectively incorporate currentfire-related information, includingscientific knowledge, riskassessment, social and economicconcerns, and public healthconsiderations; and ensure thatexisting land management plansare revised or updated to addressthe above actions.

In general, compatible,ecosystem-based, multiplescale, interagency landmanagement plans havenot been developed. Someefforts have been made atlarge-scale landmanagement planning thatintegrate ecosystemconcepts across agencyboundaries, including theInterior Columbia BasinEcosystem ManagementProject and the SierraNevada Ecosystem Project.Some unit-level crossboundary efforts isunderway.

Continue to implement aspart of normal agencypolicies and procedureswith understanding thatthe original action itemshould be a long termgoal and is not likelyachievable in the shortrun. See alsoImplementation Actions1a and 1b.

06 Expedite the decision-makingprocess by jointly developingcriteria for evaluating ecosystemcondition by ecosystem type andfor prioritizing areas for thereintroduction of fire to meetresource objectives and reducehazards. This process will identifythose ecosystems where fire doesnot need to be reintroduced (fireis not a significant naturalcomponent, or the fire regime hasnot been altered); where fire isunlikely to succeed (fire would beadverse, such as areas significantlyaltered by fuel accumulations andspecies changes) - determineappropriate, ecologically soundalternatives for these areas; andwhere treatment with fire isessential or potentially effective(fire is needed to improveresource conditions or reduce riskand hazard).

The JSFP is sponsoringwork that will provide toolsand information that willsupport this type of work.However, criteria forevaluating ecosystemcondition by ecosystemtype and for prioritizingareas for the reintroductionof fire to meet resourceobjectives and reducehazards have not beendeveloped. Research isbeginning to yield someresults.





DISPOSITION

07 Jointly implementecosystem-based fire managementprograms to accomplish resourceor landscape managementobjectives when consistent withland management plans. Theseprograms will strive to maintainthe long-term integrity of thenatural resources and minimizethe undesirable effects of fire;address the highest-priority needsin ecosystem assessment,monitoring, and management anddetermine the appropriate scopeof fire use, consistent withhistorical fire regimes, includingextent, timing, and risks andconsequences; use existing toolsand develop new ones to addresstoday’s more fragmentedlandscapes and to enhance ourability to manage wildland fires ofvarying size and intensity; andillustrate the management actionsand their results by establishing orexpanding fire managementdemonstration areas.

Various individual actionshave been taken by someagencies to improveplanning processes andcoordinate some plans. Inbroad terms,ecosystem-based firemanagement programs toaccomplish resource orlandscape managementobjectives when consistentwith land managementplans have not beenimplemented. However,some examples of suchplanning do exist:Northwest Forest Plan,Interior Columbia BasinManagement Plan, andSierra Framework.


08 Conduct a collaborative fireresearch program to improve thepredictive understanding ofwildland fire and its relationship toecosystem dynamics and tostrengthen the technologicalcapabilities and organizationalframework necessary to sustainthe role of fire in naturalecosystems.

The JFSP addresses thefuels management aspectsof this action item. Therecently expansion of theJFSP will allow additionalissues to be addressed.

See ImplementationAction 5a.




DISPOSITION

09 Establish an interdisciplinary teamthat includes all agencies,regulators, and other partners todesign a consistent fire- role andfire-use message for decisionmakers and the public. Thismessage will describe and clearlyexplain issues such as ecosystemcondition, risks, consequences(including public health impacts),and costs in open dialogue withinternal and external constituentsand be designed to maximize opencommunications and reducepolarization among conflictinginterests regarding the use of fire.

Under the leadership ofthe National WildfireCoordination Group a jointmessage was developed.This message has not beenincorporated into agencypolicies and activities.

Implementation is anongoing process. See alsoImplementation Action 8.

10 Build on existing interagencyefforts to develop and implementa strategic plan that educates thegeneral public and agencypersonnel about the role of fire.As part of this effort, agencies willdevelop and widely transmit aclear message about the importantrole of fire as a natural processand the risks and consequences ofits use and exclusion; integrate thismessage into existing agencycommunication systems, agencyand partner initiatives (such asforest health, ecosystemmanagement, etc.), and all externaloutreach efforts, includingtelevision, magazines, newspapers,and public meetings; encourage,create, and coordinatepartnerships to achieveconsistency in messages, buildpublic trust, and obtain publicopinion; and develop mandatorynational and regional interagencytraining programs to instill in allemployees an understanding ofthe role of fire in natural systems.

Various agencies havetaken actions to provideinformation internally andexternally regarding therole of fire. However, nointeragency strategic planhas been developed.

Implementation is anongoing process. See alsoImplementation Action 8.




DISPOSITION

USE OF WILDLAND FIRE

11 Jointly develop programs to plan,fund, and implement an expandedprogram of prescribed fire infire-dependent ecosystems.

Various joint planning andoperational activities havetaken place.

Continue to plan, fund,and implementinteragency prescribedfire activities.

12 Facilitate the planning andimplementation of landscape-scaleprescribed burns across agencyboundaries. Seek opportunities toenter into partnerships with tribal,State and private land managers toachieve this objective whereappropriate.

Various joint planning andoperational activities havetaken place.

Agencies should continueto place a priority oncross boundary andlandscape scale prescribedfire projects.

13 Require appropriate treatment offuel hazards created byresource-management andland-use activities.

Required by each agency’spolicies.

Implementation is anongoing process.

14 Conduct all prescribed fireprojects consistent with land andresource management plans,public health considerations, andapproved prescribed burn plans.

Required by each agency’spolicies.


15 Implement the National WildfireCoordinating Group (NWCG)interagency prescribed firequalification and certificationstandards.

Standards have beenestablished and are beingutilized.


16 Train and maintain a qualified andadequate work force to plan andimplement interagency prescribedfire projects safely and effectively,and make these personnelavailable when needed.

NWCG training andqualification standards arein place to support thetraining.

Implementation is anongoing process. See alsoImplementation Action6b.




DISPOSITION

17 Jointly develop simple, consistenthiring and contracting proceduresfor prescribed fire activities.

The Department of theInterior has approved theuse of AdministrativelyDetermined hiringauthority to conducthazard reductionprescribed fire operations.

Implementation is anongoing process. USDAForest Service needs todevelop simple,consistent hiring andcontracting proceduresfor prescribed fireactivities. Proceduresshould be consistent andapplicable acrossagencies.

18 Conduct research anddevelopment on fuel treatmentalternatives and techniques.

The JFSP specificallyaddresses this issue.

Continue to implementthe JFSP and throughImplementation Action5a.

19 Seek authority to eliminateinternal barriers to the transferand use of funds for prescribedfire on non-federal lands andamong federal agencies.

Report language in the1998 appropriations billreduces barriers to use offunds for prescribed fireamong federal agencies byeliminating cross billing forpersonnel costs. Non-federal partnerships can bedeveloped to do prescribedburning through some typeof an agreement but therehas to be benefit to thefederal bureau to justifyspending on private lands.Language in the 2001appropriations bill allowsuse of funds for fuelstreatments on non-federallands.

Agencies must continueto remove internaladministrative barriersrelated to “types” of fire.Agency proceduresshould be based onappropriate response tofire, not source ofignition or location.




DISPOSITION

20 Seek authority or provideadministrative direction toeliminate barriers to carrying overfrom one year to the next all fundsdesignated for prescribed fire.

The House Report on the1998 appropriations billeliminates the problem ofcarryover of prescribed firefunding by providingfunding authority identicalto that for wildland firesuppression. Up frontallocation or budgeting forprescribed fire is no longernecessary.

No further actionrequired.

21 Work with the Office ofPersonnel Management to acquireauthority for hazard pay tocompensate employees exposed tohazards while engaged inprescribed burning activities.

The Interior and ForestService fire programmanagers do not supporthazard duty pay forprescribed fire operations.

Drop this as an ActionItem. However, to thegreatest extent feasible,ensure that employeesengaged in firemanagement activities aretreated comparably,regardless of source orlocation of ignition.Address as a payadministration issue basedon type of workemployees perform.

22 Clarify that prescribed firepositions qualify for primarycoverage under special firefighterretirement, and issue appropriateguidance to field offices.

Firefighter and lawenforcement retirementspecialists within thebureaus concurred thatprescribed fire positionsand work qualified forprimary coverage underspecial retirement coveragefor fire. Bureaus haveissued memorandums tothis effect.

Implementation is anongoing process. Inparticular, ensure thatemployees engaged infuels management workare treated comparably.




DISPOSITION

23 Jointly develop an assessmentprocess for determining theprobability of success and/orfailure associated with the use ofprescribed fire and evaluatingpotential positive and negativeconsequences. As a part of thisprocess, the effects of notconducting the project will also beevaluated.

An adequate assessmentprocess has not beendeveloped.

Bureaus need to continueto develop and refineassessment processes.These processes shouldbe developed consistentlyso that joint reviews arepossible and so thatresults are comparableacross agency lines. Giveemphasis to identifyingconsequences of failure.See also ImplementationActions 9a and 10.

24 Jointly develop tools to identify,assess, and mitigate risks fromprescribed fires.

Adequate tools to identify,assess, and mitigate risksfrom prescribed fires havenot been developed.

Bureaus need to continuedevelop tools to identify,assess, and mitigate risksfrom prescribed fires.These tools should bedeveloped consistently sothat joint reviews arepossible and so thatresults are comparableacross agency lines. Giveemphasis to identifyingconsequences of failure.See also ImplementationActions 9a and 10.

25 Create an organizational climatethat supports employees whoimplement a properly plannedprescribed fire program.

Agencies have developedawards and otherrecognition programs forthe prescribed fireprogram. Some agencieshave taken specific effortsto ensure that roles andresponsibilities are clear.





DISPOSITION

26 Reevaluate prescribed burnplanning and executionrequirements to ensure adequacyof direction without unnecessaryconstraint.

Department of the InteriorManual, DOI Bureaumanuals and USDA ForestService manuals have beenupdated to eliminateunnecessary constraints.Work continues with EPAand states to reduceconstraints whereappropriate. Manuals andhandbook guidance will becontinually evaluated toeliminate constraints.


26a The Secretaries of the Interiorand Agriculture will seeklegislation providing for promptreimbursement to privatelandowners for damages resultingfrom escaped prescribed firesoriginating on federal lands.

Upon further review,amending the Tort ClaimsAct for this purpose is notof significance for theimplementation of theprescribed fire program.

Drop this as an ActionItem.

PREPAREDNESS AND SUPPRESSION

27 Establish fire managementqualifications based on programcomplexity, and staff existing andfuture agency administrator andfire management vacancies withindividuals who meet thesequalifications and who arecommitted to accomplishing thetotal fire management program.

The Interagency FireProgram ManagementQualification Standardsand Guidelines as beenapproved by the FFALCand has been sent to theDepartments of theInterior and Agriculture fortransmittal to the Office ofPersonnel Management forapproval.

After OPM approvalagencies shouldimplement as part ofnormal agency activities.




DISPOSITION

28 Develop appropriate tools(training, handbooks, jobperformance guidelines, planningdocuments) necessary to assistadministrators and firemanagement personnel to developand manage a safe and effectivefire management program.

Interagency tools such asBehave, FARSITE, theImplementation of FirePolicy handbook, theInteragency Fire ProgramManagement QualificationsStandards Guidelines,Prescribed Fire Planningand Implementation, andFire Effects Monitoringhave been developed are inuse by all agencies.


29 Through training, job details, orother methods, increaseexperience and fire qualificationsof Agency Administrators and firemanagement personnel.

Agencies are implementingthis recommendationthrough a variety oftraining actions. Someagencies have mandatedparticular courses foragency administrators.

Continue to implement aspart of normal agencypolicies and proceduresto ensure that all AgencyAdministrators and firemanagement personnelare appropriately qualifiedas quickly as possible.

30 Enforce a system ofaccountability to manage a safeand efficient fire managementprogram based on standard jobperformance requirements. Theserequirements should include itemsspecifically related to safety andwill recognize and reward successand provide disciplinary action forfailure.

Agencies are implementingthis recommendation on anindividual basis. Standardjob performancerequirements are developedbut not yet implementedthroughout all agencies.





DISPOSITION

31 Establish partnerships withcontractors; cooperators, such asrural and volunteer firedepartments; and others, whichencourage and assist them toadopt and implement federalstandards for training,qualifications, firefightingequipment, personal protectiveequipment, etc.

A number of national andlocal efforts are underwayin each agency to improvetraining, assistance, andother means of workingwith cooperators. TheSeptember 2000 Report tothe President and thesubsequent 2001appropriations bill includesadditional funding tosupport improvedcooperation with state,rural, and volunteer fireorganizations.


32 Define values to be protected,working in cooperation with State,local, and tribal governments,permittees, and public users.Criteria will includeenvironmental, commodity, social,economic, political, public health,and other values.

The agencies developedand adopted a WildlandFire Situation Analysis(WFSA) to address valuesto be protected and theother criteria identified inthis action item. Thisdocument is used by allagencies on incidents thatescape initial attack andrequire a greatercommitment of firefightingresources.

Implementation is anongoing process.Agencies should ensurethat the WFSA processappropriately definesvalues to be protectedand is a useful tool forincident commanders.

33 Develop long-range interagencywildland fire managementobjectives, based on values to beprotected, across geographic andagency boundaries.

Implementation of thisaction item is carried out atthe local level as anongoing, long-term effortduring fire managementplanning. Guidance iscontained in bureaumanuals. Implementationacross agency andgeographic boundaries hasbeen limited.

Continue to implement aspart of normal agencypolicies and procedureswith emphasis ondeveloping objectivesacross geographic andagency boundaries.




DISPOSITION

34 Develop interagency preparednessplanning based on establishedinteragency wildland firemanagement objectives.

A national preparednessplan is incorporated in theNational InteragencyMobilization Guide, whichis adopted on aninteragency basis annually.Annual preparedness plansare developed and includedin each Geographic Area’sMobilization Guide.

Continue to implement aspart of normal agencypolicies and procedureswith emphasis on thelocal, unit level.Continued work on crossagency fire managementplanning at the local, unitlevel is required.

35 Develop interagency strategies toimplement preparedness plans.These strategies must considerboth initial attack and extendedattack capability and shouldinclude the full range of availablecooperator and contractorresources.

Preparedness plans areimplemented at thegeographic and local levels.

Continue to implement aspart of normal agencypolicies and procedureswith emphasis ondeveloping objectivesacross geographic andagency boundaries.

36 Develop consistent language to beincluded in budget appropriations,enabling the full spectrum of firemanagement actions on wildlandfires.

The Department of theInterior and the USDAForest Service have workedtogether to developconsistent language forwildland fireappropriations.

Implementation is anongoing process. Allagencies should continueto develop consistentbudget requests andimplement consistently atthe national and fieldlevel. As new agencies,such as DOD and DOE,join the interagencyprogram, their budgetsshould be consistent withthose of DOI andUSDA.

37 Work together and with otheraffected cooperators, groups, andindividuals to develop andimplement fire prevention plans toprevent unauthorized ignition ofwildland fire.

All agencies havedeveloped andimplemented various fireprevention plans, inconjunction withcooperators, partners, andother groups.





DISPOSITION

38 Provide first for firefighter andpublic safety. Once people arecommitted to an incident, thoseresources become the highest valueto be protected and receive thehighest management considerations.

All agencies haveimplemented strongprograms to emphasizethat public and firefightersafety is the primaryobjectives on a wildlandfire incident.

Implementation is anongoing process. Thismessage needs continualre-enforcement andemphasis.

39 Protect property and natural andcultural resources secondary tofirefighter and public safety.

Changes have been madein the NationalMobilization Guide and inbureau policy statements.Training materials havebeen revised anddeveloped.

Implementation is anongoing process. See alsothe new policy statementon Protection Priorities(changed from 1995).

40 Base the second protectionpriority on the relative values ofproperty and natural and culturalresources when firefightingpersonnel and equipment arelimited.

Changes have been madein the NationalMobilization Guide and inbureau policy statements.Training materials havebeen revised anddeveloped.

Implementation is anongoing process. See alsothe new policy statementon Protection Priorities(changed from 1995).

41 Use standard criteria to assessoverall suppression and supportrequirements.

Interagency standards andcriteria have beendeveloped and are in use byall agencies.


42 Examine and identify, on aninteragency basis, employeeavailability at each organizationallevel, based on fire qualificationsand other necessary skills toprovide needed suppression andsupport. This will includeplanning for both initial attack andextended attack at the local level.

Some agencies haveconducted some workloadanalyses. However, therehas been no interagencyeffort.

Implement as part ofImplementation Action6a.




DISPOSITION

43 Develop and utilize, to themaximum extent possible, theconcept of closest initial attackforces and interagency staffing forwildland fire suppression andsupport, optimizing the use of thefederal and non-federal workforce. Qualified contractors are acomponent to be considered insuppression and support planning.

Resource coordination iscarried out through theGeographic Areas and atlocal levels throughdispatch organizations.Local MOU’s for sharingresources, including stateand local government,continue to be developed.


44 Use an analysis and decisionmaking process that considers, onan interagency basis, existing andpotential fire severity; suppressionresource commitment andavailability; prescribed fire activity;environmental, social, and politicalconcerns; and other pertinentfactors.

The interagency WildlandFire Situation Analysis(WFSA) is used onincidents that escape initialattack and require a greatercommitment of firefightingresources. The interagencyAllocation of Resourcesprotocols are used toaddress multiple incidentsand complex situations.


45 Develop interagency severity plansto provide increased firesuppression capability inemergency situations, includingaccessing additional resources,pre-positioning resources, andtraining emergency firefighters.

Local units and interagencypartners coordinateresources as dictated by theseverity of local conditions.National PreparednessLevels dictate the need fornational-levelcontingencies.

Implementation is anongoing process. Ensurethat severity requests arehandled on aninteragency basis.

46 Develop a standard interagencyplanning, budgeting, and staffingprocess.

Fire management planningand budgeting systemsused by the agencies utilizesimilar terms, commongoals, values andassumptions to gain similarresults within the planningand budgeting process. Asingle, standard system isnot feasible due to thedifference in missions ofbureaus, but outcomesfrom the process can becompared.





DISPOSITION

WILDLAND URBAN INTERFACE PROTECTION

47 Adopt an operational role in theWildland Urban Interface thatincludes wildland firefighting,hazard fuels reduction,cooperative prevention andeducation, and technicalassistance.

Bureau manual updatescontain language definingthe operational role inWildland Urban Interfaceareas. In some areassignificant progress hasbeen achieved withimplementing the federaloperational role.

Implementation is anongoing process. Inparticular, Sub-Geographic Areas andlocal units, as appropriate,should work actively withpartners and cooperators.See also ImplementationActions 3a and 3b.

48 Identify and fund, on a cost-sharebasis, high-priority fuelsmanagement activities on federallands adjacent to Wildland UrbanInterface areas identified througha fire protection assessmentprocess that considers relativevalues to be protected. Theseactivities may involve adjacentnon-federal lands.

Additional funding forfuels management activitieshas been included inDepartment of the Interiorand the USDA ForestService wildland firemanagement budgets since1995. The 2001appropriations bill includesboth substantial newfunding for fuelsmanagement activities anddirection to identify high-priority areas.

Continue to implementfuels managementactivities, especially theprogram proposed in theSeptember 2000 Reportto the President and thesubsequent Fiscal Year2001 appropriations.

49 Lead by example in utilizingfire-safe standards at federalfacilities.

All agencies adhere to localbuilding codes, but fire-safestandards have not beenconsidered in the design oftheir facilities.

Agencies must follow firesafe standards at all newand existing facilities.

50 Ensure that all Wildland UrbanInterface areas are covered by FireProtection Agreements;renegotiate existing agreements asneeded to reflect a federalresponsibility that is compatiblewith federal policy and to ensurethat State and local responsibilitiesare apportioned appropriately.Agreements will address allpartners in these areas.

Agencies have developedand updated fire protectionagreements in many areas.

Implementation is anongoing process.Develop agreementswhere none exist. Notethat role of federalagencies is limited toentering into agreementswith non-federal entities.Establishment of FireProtection Agreementsand organizations amongnon-federal entities is anon-federal responsibility.




DISPOSITION

51 Incorporate Wildland UrbanInterface considerations intoagreements, operating plans, landmanagement plans, and agencyFire Management Plans.

Agencies are incorporatingWildland Urban Interfaceconsiderations intoagreements, operatingplans, land managementplans, and agency FireManagement Plans.


52 Charge the National WildfireCoordinating Group withidentifying and establishing adata-collection mechanism, incoordination with tribal, State, andlocal governments, insuranceindustry, National Fire ProtectionAssociation, and others, to betterassess the nature and scope of theWildland Urban Interface fireproblem.

No national level datacollection mechanism, orstrategic effort for such,has been developed.

Implement, asappropriate, as part ofImplementation Action5b.

52a Charge the National WildfireCoordinating Group withidentifying specialized skills andtraining that are needed by bothwildland and structural fireagencies in the interface andincorporating those requirementsinto the Wildland FireQualification System to providefor safe and efficient operations inthe Wildland Urban Interface.

Agencies use NWCGapproved training includingthe Fire Operation in theUrban Interface (S-205)course to meet this need.Additional planning andoperations course work isbeing developed as a tieredapproach with the S-205course.

Implementation is anongoing process. Adopttiered courses as theybecome available.

52b Charge the National WildfireCoordinating Group withdeveloping operational curricula,in cooperation with the NationalFire Academy, for protection inthe Wildland Urban Interface.

One course developed andin use; additional courseand a workbook still underdevelopment (expected in2001)





DISPOSITION

52c Charge the National WildfireCoordinating Group withimplementing training throughinteragency systems and jointtraining activities and augmentingfire training not available at theState and local levels. Staffed toNWCG TWT for implementationmonitoring.

Federal fire managementtraining courses areavailable to personnel fromnon-federal agencies. WUIissues also incorporatedinto standard NWCGcurriculum.


52d Charge the National WildfireCoordinating Group withidentifying and implementingequipment standards for WildlandUrban Interface operation.

Completed No further actionrequired beyond normalupdating of standards asappropriate.

53 Increase emphasis on cost-shareprogram assistance in theWildland Urban Interface throughthe USDA Forest Service Stateand Private Cooperative FireProgram, including training andequipping of State and localagencies. Assess and revise, asneeded, other mechanisms toensure funding is directed toagencies with Wildland UrbanInterface responsibilities.

The USDA Forest Service,in cooperation with theNational Association ofState Foresters andNational Volunteer FireCouncil, is implementingthis action item throughthe Federal Excess PersonalProperty, Rural CommunityFire Protection, and RuralFire Prevention andControl programs. Over ahalf million dollars ingrants were provided to thestates to assist withWildland Urban Interfaceprojects in 1999. Thisincluded providingequipment and training tolocal fire agencies. Moregrants are planned in futureyears.

Implementation is anongoing process.Additional funding andexpanded programs forUSDA Forest Service andDOI in the Fiscal Year2001 appropriations willenhance implementationof this action item.




DISPOSITION

54 Educate agency personnel onfederal cost-share and grantprograms, Fire ProtectionAgreements, and other relatedfederal programs so the full arrayof assistance available to Statesand local agencies is understood.

The USDA Forest ServiceCooperative Fire ProgramCoordinators in eachregion are sharinginformation on assistanceavailable to communitiesand states through the useof Agency personnel. TheBIA provides thisinformation to the tribesthrough its respectiveprograms. Not applicableto other agencies.

Continue to implement aspart of normal agencypolicies and procedures,including new programsin the Department of theInterior.

55 Participate in the development andexecution of a national WildlandUrban Interface fire hazardmapping scoping study incooperation with tribal, State, andlocal governments and the privatesector.

Combined with ActionItem 83.

See Action Item 83

56 Increase communication withWildland Urban Interfaceproperty owners, planners, electedofficials, and others througheducation and awareness messagesabout the role of fire in wildlandecosystem health, inherent risks inWildland Urban Interface areas,available prevention andprotection measures, and federaldisaster assistance programs.

Agencies have ongoingactivities with geographicand local preventionprograms and teams. TheNational FIREWISECommunities program hasinitiated a series of nationaland regional workshopsdesigned to help localofficials understand the riskassociated with theinterface and the potentialsolutions. The workshopsbring together all levels ofprogram managers anddecision makers.





DISPOSITION

57 Expand programs, curricula, anddistribution systems for WildlandUrban Interface educationalmaterials in cooperation withstructural protection agencies.

Various ongoing agencyand interagency effortsthrough the NWCGWildland Urban InterfaceWorking Team and throughsuch activities as theinteragency, public-privateFIREWISE program.


58 Support and participate in publiceducation efforts in cooperationwith the Insurance Institute forProperty Loss Reduction (IIPLR)and fire and building codeorganizations.

Through the FIREWISEprogram and otheractivities, the agencies haveworked with insurance andfire and building codeorganizations.


59 Utilize the recently recharteredNational Wildland UrbanInterface Fire Protection Program,which includes the Department ofthe Interior, Department ofAgriculture, FEMA’s U.S. FireAdministration, NationalAssociation of State Foresters,National Association of State FireMarshals, and National FireProtection Association, to focuson Wildland Urban Interface fireprotection issues and actions.

The NWCG WildlandUrban Interface WorkingTeam continues to addressWildland Urban Interfacefire protection issues andactions


60 Utilize the Western Governors’Association (WGA) as a catalystfor involving State agencies, aswell as local and privatestakeholders, with the objective ofdeveloping an implementationplan to achieve a uniform,integrated national approach tohazard and risk assessment andfire prevention and protection inthe Wildland Urban Interface.

The National Associationof State Foresters (NASF)agreed to monitor progresson variousintergovernmental andnon-governmentalimplementation activities inthe WGA report.

Continue to use WGA,NASF, and other non-federal organizations todevelop uniform,integrated nationalapproaches to hazard andrisk assessment and fireprevention and protectionin the Wildland UrbanInterface.




DISPOSITION

61 Work with the States to developviable and comprehensivewildland fire hazard mitigationplans and performance-basedpartnerships.

Principal effort toimplement this action itemhas come through theFederal EmergencyManagement Agency’s(FEMA) pre- and post-disaster mitigation planningprograms and guidance.

All agencies shouldcontinue to work with theStates to develop viableand comprehensivewildland fire hazardmitigation plans. FEMA’smitigation planningprograms, including theProject initiative, shouldcontinue to be a keyaspect of implementingthis action item.

COORDINATED PROGRAM MANAGEMENT

62 Develop and utilize consistent firemanagement qualificationstandards and specific selectioncriteria for fire program managers.

The Interagency FireProgram ManagementQualification Standardsand Guidelines as beenapproved by the FFALCand has been sent to theDepartments of theInterior and Agriculture fortransmittal to the Office ofPersonnel Management forapproval.

Departments of theInterior and Agricultureconcur with theInteragency Fire ProgramManagementQualification Standardsand Guidelines and seekOPM approval. Afterapproval agenciesimplement as part ofnormal agency activities.

63 Establish job performancestandards for AgencyAdministrators and fire managersthat clearly reflect the complexityand scope of fire managementresponsibilities.

Agency performanceappraisal systems generallydo not allow specific firemanagement jobperformance elements.The Bureau of LandManagement has identifiedperformance standards inits fire managementoperations guide, but thereremains no means ofassessing consequences ofpoor performance.

All agencies shouldidentify fire managementjob performancestandards (consistentacross agencies). Agenciesmust determine how tolink these performancestandards withperformance appraisal.




DISPOSITION

64 Provide consistent and adequatetraining for AgencyAdministrators commensuratewith their roles andresponsibilities in firemanagement.

The Fire ManagementLeadership course at theNational AdvancedResource TechnologyCenter (NARTC) providestraining for unit levelmanagers and similarAgency Administrators.Similar training for otherAgency Administrators isoften not available.

All Geographic Areasneed to regularly offer theFire ManagementLeadership course forAgency Administrators intheir Geographic Areas.

65 Ensure that AgencyAdministrators and fire programmanagers are held accountable forconducting the fire program inaccordance with establishedpolicies, procedures, standards,and direction.

Each agency conductsregular readiness andprogram reviews within itsoverall organization. Thesereviews provide theinformation necessary tohold AgencyAdministrators and fireprogram managersaccountable.

Continue to conductregular reviews ofprograms andimplementation at variousorganizational levels.Agency leaders must holdAgency Administratorsand fire programmanagers accountable forthe results of thosereviews.

66 Ensure that trained and certifiedemployees participate in thewildland fire program as thesituation demands; employeeswith operational, administrative,or other skills support thewildland fire program as needed;and administrators are responsible,accountable, and make employeesavailable.

In general agencies areexperiencing difficultieswith widespread training,certification, andavailability of employees.This action item has notbeen successfullyimplemented.

Implementation is anongoing process.Agencies should place anemphasis on trainingemployees and makingthem available. See alsoImplementation Action6a.

67 Jointly manage fire use andsuppression resources andactivities to achieveaccomplishment of bothprograms concurrently.

The interagency Allocationof Resources protocolsprovide the means forimplementing this actionitem.

The Allocation ofResources protocols mustbe implementednationally, at eachGeographic Area, and atthe sub-Geographic Arealevel.




DISPOSITION

68 Jointly develop a standardmethodology for measuring andreporting fire managementefficiency that includescommodity, non-commodity, andsocial values. This methodologyshould specifically address, amongother considerations, the costs andbenefits of large-fire suppression.

Not done. Drop as a specific actionitem. This issue shouldbe addressed throughongoing interagencyprogram managementand evaluation activities.See ImplementationActions 9a and 10.

69 Develop criteria to be used inevaluating alternative firemanagement organizations. Someexamples of criteria include:meeting land managementobjectives, reintroducing fire inthe ecosystem, ensuring costeffectiveness, effectively dealingwith wildland urban interface fireprotection, and using partnershipsand cooperative relationships.

See #70 See #70

70 Use these criteria to analyze, withcooperators, a broad range oforganizational alternatives on anational, regional, and local basis.Examples of alternatives include asingle federal fire organization;contracts with States, privatesector, tribal governments,military, or combinations thereof;and status quo.

Each agency conductsongoing reviews of its firemanagement organizations.The USDA Forest Servicesponsored a detailedanalysis of options for itsorganization. No broadscale interagency analysesor reviews have takenplace. Recently aninteragency effort hasbegun to look at alternativeapproaches for large fireorganizations.

Address issues oforganizational structureand coordination throughindividual agency reviewsand evaluations andthrough ImplementationActions 6a & 6b.




DISPOSITION

71 Jointly identify the legal contextfor reintroducing fire intowildlands and develop options foraccomplishment. Options mayinclude modifying regulations toaddress ecological processeswhere appropriate; exercisingbroader interpretations of policy;or resolving obstacles at regionaland local levels, including those onnon-federal lands. Based on thisinterpretation, developstandardized agreements or newagreements that permit theseactivities.

Not done. This type of analysis nolonger necessary forimplementation ofFederal Fire Policy. Nofurther action required.

72 Clarify and differentiate betweenagency liability and personalliability resulting from prescribedfire, based on legal review andinterpretation of tort law.

This type of informationhas been developed forspecific presentations atvarious fire managementcourses, but has not beengenerally documented.

Include standardinformation clarifying anddifferentiating betweenagency liability andpersonal liability in firemanagement courses andother materials foremployees and agencyadministrators.

73 Early in the process, involvepublic health and environmentalregulators in developing the mostworkable application of policiesand regulations.

Various efforts have takenplace on a national andlocal level to involve publichealth and environmentalregulators. These activitieshave focused on air qualityissues.

Implementation is anongoing process. Landmanaging agencies mustcontinue to include allfederal and non-federalregulatory agencies indevelopment of policies,procedures, plans andother aspects ofimplementing FederalFire Policy.




DISPOSITION

74 The Secretaries of the Interiorand Agriculture will direct theOffice of the Solicitor and theOffice of the General Counsel, incoordination with the Departmentof Justice and other appropriatefederal agencies, to conduct andpublish a comprehensive legalreview on Wildland UrbanInterface fire protection toprovide the legal foundation forfederal actions. This review willaddress current authority underfederal laws such as the OrganicAct, National Forest ManagementAct, Robert T. Stafford DisasterRelief and Emergency AssistanceAct, and the Federal Land Policyand Management Act.

Not completed. Uponfurther consideration thisreview was determined tobe unnecessary toimplement the wildlandurban interface aspects ofthe Federal Fire Policy.


75 The Secretaries of the Interiorand Agriculture will direct theOffice of the Solicitor and theOffice of the General Counsel, incoordination with the Departmentof Justice and other appropriatefederal agencies, to conduct andpublish a comprehensive legalreview on Wildland UrbanInterface fire protection toprovide the legal foundation forfederal actions. This review willaddress the subjects of tortliability, budget authorities,cooperative agreements,mitigation activities, and naturalresource protection andenvironmental laws.

Not completed. Uponfurther consideration thisreview was determined tobe unnecessary toimplement the wildlandurban interface aspects ofthe Federal Fire Policy.





DISPOSITION

76 The Secretaries of the Interiorand Agriculture, together with theSecretary of Commerce, willassess current and projectedrequirements for fire weatherproducts necessary to supporttotal wildland fire managementprogram needs.

The NWCG Fire WeatherWorking Team hasattempted to assess currentand projected requirementsfor fire weather products aspart of its ongoing effortsto address fire weatherissues. To date it has notcompleted this overallassessment.

See ImplementationAction 9e.

77 The Secretaries of the Interiorand Agriculture, together with theSecretary of Commerce, willevaluate alternative methods,including non-federal sources, toprovide weather service to theagencies’ fire managementprograms.

The NWCG Fire WeatherWorking Team hasattempted to develop anational strategy that wouldinclude an evaluation ofalternative methods toprovide weather service tothe agencies’ firemanagement programs.To date it has notcompleted this nationalstrategy.

See ImplementationAction 9e.

78 The Secretaries of the Interiorand Agriculture will seekcommitment from the Secretaryof Commerce to research anddevelop technology to provideaccurate, long-range weatherforecasts.

Not completed. See ImplementationAction 9e.

79 Standardize fire statistics anddevelop an easily accessiblecommon database.

Not completed. This is partof National InteragencyFire Statistics InformationProject (NIFSIP) ofNWCG. NWCG hasplaced a low priority onthis relative to otherprojects.





DISPOSITION

80 Jointly identify, develop, and usetools needed for ecosystem-basedfire management programs withmechanisms to integratefire-related databases with othersystems. These tools will includethe collection ofecosystem-related data such asdisturbance regimes, historical firepatterns, response to managementactions, and others; consistentmethods to track and accessfire-use statistics andadministrative costs; andmechanisms to transfer andexchange fire managementsystems information.

Some work sponsored bythe JFSP addresses theissue of the collection ofecosystem-related datasuch as disturbance regimesand historical fire patterns.No other work on this itemhas occurred.

Implement, asappropriate, as part ofImplementation Actions5a and 5b.

81 Cooperate with tribal, State, andlocal governments to establish adata-collection mechanism tobetter assess the nature and scopeof the Wildland Urban Interfacefire problem.

This has been incorporatedinto the work of theNational Interagency FireStatisticsInformation Project(NIFSIP). See Action Item79.


82 Take a lead role in the adoption ofthe National Fire IncidentReporting System standards for allfire agencies that operate in theWildland Urban Interface andmodify existing reports to reflectWildland Urban Interface fireprotection data.

States have beenencouraged to participatein the National IncidentReporting Systemestablished by the NationalFire Administration. Morework needs to be done toestablish a nationalreporting system withinvolvement of both statesand federal agencies.However, little progress hasbeen made in incorporatingwildland urban interfacedata into NFRS.





DISPOSITION

83 Complete a national WildlandUrban Interface fire hazardscoping and mapping study inpartnership with the WesternGovernors’ Association; tribal,State, and local governments; andthe private sector.

Not done. Implementationof the September 2000Report to the Presidentand the programs fundedin the 2001 appropriationsmay result in additionalhazard scoping andmapping. However, this isnot expected to beperformed at a nationalscale.

Continue to implement aspart of normal agencyprograms and procedures.


APPENDIX G: Working Group and Support Staff - 77

AA PP PP EE NN DD II XX GG :: FF II RR EE PP OO LL II CC YY WW OO RR KK II NN GG GG RR OO UU PP MM EE MM BB EE RR SS

Jim Douglas, Co-Chair, Emergency CoordinatorOffice of Managing Risk and Public SafetyDepartment of the Interior

Tom Mills, Co-Chair, DirectorPacific Northwest Research StationUSDA Forest Service

Don Artley, Montana State ForesterNational Association of State Foresters

Dan Ashe, ChiefNational Wildlife Refuge SystemU.S. Fish and Wildlife Service

Ann Bartuska, DirectorForest & RangelandsUSDA Forest Service

Dick Black, DirectorOffice of Nuclear and Facility Safety PolicyDepartment of Energy

Stan Coloff, Physical ScientistBiological Resources DivisionU.S. Geological Survey

Jose Cruz, DirectorFire and Aviation Management StaffUSDA Forest Service

Mike Edrington, DirectorRegional Fire and Aviation StaffUSDA Forest Service/Bureau of LandManagement

Jack Edwardson, Deputy DirectorAir Quality Strategies and Standards DivisionEnvironmental Protection Agency

Rick Gale, ChiefFire and AviationNational Park Service

Larry Hamilton, DirectorOffice of Fire and AviationBureau of Land Management

Bob Landis, ChiefMeteorological Services DivisionNational Weather Service

Brad Powell, Regional ForesterPacific Southwest RegionUSDA Forest Service

Steve Robinson, Assistant AdministratorU.S. Fire AdministrationFederal Emergency Management Agency

Sherri W. Goodman, Deputy Under SecretaryEnvironmental SecurityDepartment of Defense

Ronald J. (Rusty) Schuster, ManagerLand, Recreation & Cultural Resources OfficeBureau of Reclamation

Jim Stires, ChiefBranch of Fire ManagementBureau of Indian Affairs

Jan Van Wagtendonk, Research ForesterWestern Ecological Research CenterU.S. Geological Survey

Patricia K. Stahlschmidt, DirectorInfrastructure Division, Response andRecovery DirectorateFederal Emergency Management Agency


78 - APPENDIX G: Working Group and Support Staff

FF II RR EE PP OO LL II CC YY SS UU PP PP OO RR TT II NN GG SS TT AA FF FF

The following personnel supported the Fire Policy Review Working Group:

Lee BanickiDepartment of Energy

Jim BiskerDepartment of Energy

Peter E. BlackDepartment of Defense

Lorine BoardwineFederal EmergencyManagement Agency

Mike DietrichUSDA Forest Service

Roger ErbU.S. Fish and Wildlife Service

Gay ErnstBureau of LandManagement/USDA ForestService

Lynn FindleyBureau of Land Management

Bob FordBureau of Indian Affairs

Bob HamreUSDA Forest Service, retired

Al HydeThe Brookings Institution

Jennifer JonesBureau of Land Management,retired

Wally JosephsonDepartment of the Interior

Robert KuhnUSDA Forest Service

Bill LeenhoutsU.S. Fish and Wildlife Service

Carol LoSapioBeyond Words

Irene MoraBureau of Land Management

Jennifer OrtegaBureau of Land Management

Robert PraytorDepartment of Defense

Andy RinggoldNational Park Service

Edwin J. SingletonBureau of Land Management

Janelle SmithBureau of Land Management

Peg SorensenBureau of Land Management

Charlene E. SpellsU.S. EnvironmentalProtection Agency

Sarah SpurrierBureau of LandManagement

Paul StokolsNational Weather Service

Jim StumpfBureau of LandManagement, retired

Joe StutlerUSDA Forest Service

Jay ThiettenBureau of LandManagement

Lindon WiebeUSDA Forest Service

Glenda WomackUSDA Forest Service

Dan WoodUSDA Forest Service

Kenneth R. WoodardU.S. EnvironmentProtection Agency

This chart depicts, in general, what action will be taken given an iginition, regardless of source. provisions in the approved Fire Management Plan for an area. The chart recognizes that not all agencies oimmediately. This chart is generally applicable to most agencies’ fire management programs. However, spdetailed chart and other supporting materials will be developed as part of implementation of the 2001 Fede

Wildland fireregardless of

ignition source orlocation

Implementprescribedfire plan

APPENDIX F: Wildland Fire Flowchar

ManagementAction

Initialattack

Appropriatemanagement

response

Fire inprescription

formanagement

area

Fire out ofprescription

formanagement

area

Approved FireManagement

Plan

Situation

No FireManagement

Plan

IgnitionFire

ManagementPlan status

Wildland fireregardless of

ignition source orlocation

APPEND

IX F: Wildland Fire Flow

chart - 75

Management actions depend on ther areas will have such plans completedecific exceptions may exist. A moreral Fire Policy.

t

Outcome

Successful

Unsuccessful

Unsuccessful

Successful

Successful

Unsuccessful

WildlandFire

SituationAnalysis


76 - APPENDIX F: Wildland Fire Flowchart

Documents

Review and Update of the 1995 Federal Wildland Fire Management