Wilderness Considerations for Fire Resource Advisors Wilderness Fire Resource Advisor Training Southern Region - 2011

Arthur Carhart

National Wilderness

Training Center

Arthur CarhartArthur Carhart

National Wilderness National Wilderness

Training CenterTraining Center

Wilderness Considerations

for Fire Resource Advisors

Wilderness Fire Resource Advisor Training Southern Region - 2011

1. Understand Wilderness management principles in relation to fire management.

2. Understand the “Authority of the Resource” management technique.

Objectives:

Some see Wilderness as…•A frustrating place to manage fire•A place we can’t use chainsaws or helicopters•Another layer of restrictions•A barrier to timely fire suppression

PERCEPTIONS …

All

Wilderness Resource Advisors

AssumptionsAssumptions......

All All

FirefightersFirefighters

There are complex issues, and There are complex issues, and confusing signsconfusing signs

Wilderness Fire Managementis a Balancing Act

Necessary fire Necessary fire management management

activitiesactivities

Wilderness resource Wilderness resource protection needsprotection needs

Wilderness Fire Management

After 8 years of debate in Congress

66 different rewrites of the bill

18 public hearings that generated over 6,000 pages of testimony…

The Wilderness Act of 1964

P.L. 88-577

Signed by President Johnson on September 3, 1964

National Wilderness National Wilderness Preservation System - Preservation System - Percentage by AgencyPercentage by Agency

BLMFWSNPSUSFS

5%

19.8%

42%

33.2%

Definition of WildernessSection 2(c)

“…affected primarily by the forces of nature…”

“…man’s work substantially unnoticeable…”

“…outstanding opportunities for solitude or primitive recreation…”

“…managed to preserve natural conditions…”

Wilderness Stewardship means:

Manage for ecological health and integrity

Provide opportunities for a wilderness experience

Minimize human caused impacts

Provide education and information about the wilderness resource, values, and benefits

Wilderness Management Direction Section 2 (a)

“... shall be administered… in such a manner as will leave them unimpaired for future use and enjoyment as wilderness…”

“provide for the protection of these areas, the preservation of their wilderness character.”

Wilderness Management Agency ResponsibilityAgency Responsibility

Section 4 (b) “ …each agency shall be responsible for

preserving the wilderness character of the area and shall so administer such area for such other purposes for which it may have been established as also to preserve its wilderness character.”

The managing agencies must preserve wilderness character.

It is the over-riding criteria for all decisions, including those involving fire management.

The Four Statutory Qualities of Wilderness Character *

UndevelopedUntrammeledNaturalOutstanding opportunities for

solitude or a primitive and unconfined type of recreation

•A National Framework for Monitoring Wilderness Character, 2006

http://www.wilderness.net/index.cfm?fuse=WC

The Four Statutory Qualities of Wilderness Character *

UndevelopedUntrammeledUntrammeledNaturalNaturalOutstanding opportunities for

solitude or a primitive and unconfined type of recreation

•A National Framework for Monitoring Wilderness Character, 2006

http://www.wilderness.net/index.cfm?fuse=WC

Untrammeled = UnhinderedUntrammeled = Unhindered“Not being subject to human

controls and manipulations that hamper the free play of natural

forces.”- Howard Zahniser, Principal author of The Wilderness Act

•“Untrammeled”

Wilderness is generally unhindered and free from intentional modern human control or manipulation

FOUR STATUTORY QUALITIES OF WILDERNESS CHARACTER

Wilderness setting Threats to this setting

Suppression and prescribed fire

Reducing fuels to restore natural fire regimes and fire effects

EXAMPLES OF MANIPULATIONTO RESTORE NATURAL CONDITIONS IN WILDERNESS

FOUR STATUTORY QUALITIES OF WILDERNESS CHARACTER

•“Natural”Wilderness ecological systems are substantially free from the unintentional effects of modern civilization

Wilderness setting

Threats to this setting

Suppression and suppression activities

Fire Control vs. Fire Management

This used to be called “a disaster”.

Fire and Wilderness

Wilderness Fire Damage or Natural Event?

Catastrophic Fire Stand Replacing

Fire Ground Fire High Intensity Low Intensity

A natural part of the ecological process and wilderness

•Long-term fire suppression is an example of large-scale manipulation of natural conditions.

•Fire use creates, for some visitors, a less natural appealing or less scenic landscape

Wilderness – Natural Appearing or Wild ?

The fire and the effects of the fire

Fire and Wilderness – Natural role

Smoke-air quality

Erosion-sedimentation

The Wilderness Act Agency ResponsibilityAgency Responsibility

Section 4 (d)

“…such measures may be taken as may be necessary in the control of fire … subject to such conditions as the Secretary deems desirable.”

The managing agencies have discretion for how fire in wilderness is managedThe National Fire Policy and agency fire and wilderness management policy describe implementation

The Wilderness ActAgency Responsibility

Section 4 (c)

no temporary roadno use of motor vehicles,

motorized equipment or motorboats

no landing of aircraftno form of mechanical transportno structure or installation

EXCEPT

The Wilderness ActAgency Responsibility

Section 4 (c)

“…except as necessary to meet the minimum requirements for the administration of the area for the purpose of this Act…”

•The ‘minimum requirements’ and ‘minimum tool’ provision of the Act.

•Applies to fire management activities.

Determining the Determining the Minimum RequirementMinimum Requirement

The minimum requirement analysis is a two step process *

The Minimum Requirements Decision Guide (MRDG) is a commonly used process for making these decisions.

http://www.wilderness.net/mrdg/


The minimum requirement analysis is a two step process

Step 1: Is administrative action needed?

•Do you really need to do something?

•Could another strategy avoid the need for unnecessary effects to wilderness?


Step 2: What is the minimum necessary management action?

If it is necessary to take action:• what is the minimum necessary tool

or method that will have the least impact on wilderness resources and values?

Wilderness Fire ManagementDetermining the Minimum Requirement for

Fire Management

•The Minimum Requirements Decision Guide (MRDG) is not designed for use in emergency situations

•A lengthy analysis is not always possible or desirable in fire emergency situations.

Wilderness Fire ManagementDetermining the Minimum Requirement

1) Determining if any action is necessary

2) Selecting the method, tool, or tactic which represents the minimum necessary administrative action.


1. Incorporate wilderness management objectives and the minimum requirements decision process into programmatic fire management planning

2. Develop GO/NO GO checklists and decision trees that will aid in the emergency decision making situations that arise.

3. Make use of the proper authority (who in the agency can make the decision).

4. Document the rationale and the decision to track the process and improve future decision making. Fire Management Toolbox at: http://www.wilderness.net/toolboxes/


and Documenting the Decision

Examples:1) BWCAW Matrix and Reporting Form2) Medicine Bow Routt NF“Approval for Motorized Equipment in Wilderness in

Support of Fire Management Activities”

3) Wallowa-Whitman NF“Approval for Motorized Equipment in Wilderness”

4) Other examples ???

Fire Management Toolbox at: http://www.wilderness.net/toolboxes/

Wilderness ManagementDetermining the Minimum Requirement

Example - Method of transport

Preferences for Limiting ImpactsLong term impacts vs. short term

disturbances

Aircraft use (if necessary)

Preferred:• Aircraft flights• Helicopter landings and/or sling loads

in natural openings

Least acceptable:• New constructed helispots


Example - Suppression activities

Preferences for Limiting ImpactsLong term impacts vs. short term

disturbancesSuppression activities (if necessary)

Preferred: • Natural fuel breaks• Cold trailing• Burnouts and backfires• Wetlines and pumps

Least acceptable:• Constructed fireline


Example – Spike and coyote camps

1) Is the camp necessary in wilderness ?

2) What is the minimum necessary development ?

The Minimum Tool vs. the Minimum The Minimum Tool vs. the Minimum RequirementRequirement

What really matters?What really matters?

Subdivisions on the Wilderness boundary

•Threats to lives and property outside wilderness

•Challenges for restoring the natural role of fire and fire use

Other Concerns for Wilderness Fire Management

Wilderness Fire Management

Information and Education

The effects of fire in wilderness should be considered neither good nor bad.

Wilderness and Fire

In fire dependent ecosystems, fire is a critically important part of the natural process.

•Unnecessary, negative impacts from suppression are not part of the natural condition.

•Always ask, is this action really necessary?

Manage fire in wilderness using only the minimum necessary actions, tools, and

methods.

Wilderness and Fire

1.Provide feasible alternatives to meet both wilderness and fire goals

2.Capitalize on a ‘teachable moment’ for wilderness

3.Explain why it matters based on actual effects to the wilderness resource

4. Use “The Authority of the Resource” communication technique

Use information and education to:

The Authority of the Resource*

The Authority of the Resource (ART) is a communication technique that allows the message to be delivered as ‘the right thing to do for the wilderness resource.’

The communication is not focused on law and policy as the primary reason for strategy or tactics.

* Education Planning Toolbox at: http://www.wilderness.net/toolboxes/

Authority of the ResourceAuthority of the Resource“I recommend revising the “I recommend revising the

helispot location…”helispot location…”“ “ Because I’m the Because I’m the resource advisor resource advisor and I have a and I have a delegation of delegation of authority that authority that empowers me to empowers me to make these make these decisions.”decisions.”

““Because taking Because taking advantage of the advantage of the natural opening will natural opening will eliminate the need eliminate the need to fell 20 trees. It’s to fell 20 trees. It’s the minimum the minimum necessary action to necessary action to insure that when insure that when we leave here there we leave here there will be no lasting will be no lasting impacts from our impacts from our activities.”activities.”

MIST began as: Minimum Impact Suppression

Techniques

MIST is evolving to:Minimum Impact Strategies and Tactics

MIST is actually:Most Intelligent Sensible

Tactics

Use ART to implement MIST:

Wilderness Resource Advisor TipsWilderness Resource Advisor Tips

1.1.Know your role with the Incident Mgmt. Know your role with the Incident Mgmt. Team, Agency Administrator, and others.Team, Agency Administrator, and others.

2.2.Be prepared to stand up and present your Be prepared to stand up and present your case for wilderness.case for wilderness.

3.3.Understand the effects of fire and fire Understand the effects of fire and fire management activities in wilderness. management activities in wilderness.

4.4.Allow and assist fire managers to do what Allow and assist fire managers to do what they they should,should, not what they not what they couldcould..

5.5.Be a credible wilderness advocate.Be a credible wilderness advocate.

“There is just one hope of repulsing the tyrannical ambition of civilization to conquer every inch of the whole earth. That hope is the organization of spirited people who will fight for the freedom and preservation of the wilderness.”

- Bob Marshall

Remember that Remember that the essential principlethe essential principle of fire of fire management is always the top priority in management is always the top priority in

wilderness too.wilderness too.

““Do not compromise firefighter or public Do not compromise firefighter or public safety”safety”

The End

Federal Wildland Fire Policy

Application to Wilderness


Federal Wildland Fire Policy Guiding Principles

First and foremost is:

“Firefighter and public safety is the first priority in every fire management activity.”

The second principle is:

“The role of wildland fire as an essential ecological process and natural change agent will be incorporated into the planning process.”


The third principle is:

“Fire management plans, programs, and activities support land and resource management plans and their implementation.”


Suppression actions can have a significant impact on the Wilderness resource.



• Introduction of unnatural elements

• Buildup of unnatural fuel conditions

Allowing fire to play it’s historic role in Wilderness can create a landscape mosaic of diverse habitats-thus increasing naturalness.



Agency Policy

Fire Management in Wilderness


BLM Policy 8560.35 ABLM Policy 8560.35 A

• Fire suppression measures and techniques must be used which achieve the wilderness management objectives with the minimum adverse impact on the wilderness resource.

• Methods and equipment which least alter the landscape or disturb the land surface are best.

FWS Policy 6 RM 8.8b C.FWS Policy 6 RM 8.8b C.

• While an aggressive approach to wildfire control on certain wilderness areas may be in order, the methods utilized should be the ‘minimum tool.’

Forest Service Policy 2320:Forest Service Policy 2320: Conduct all fire management activities within wilderness in a manner

compatible with overall wilderness management objectives. Give preference to using methods and equipment that cause the least:

1. Alteration of the wilderness landscape.2. Disturbance of the land surface.3. Disturbance to visitor solitude.4. Reduction of visibility during periods of visitor

use.5. Adverse effect on other air quality related

values.

Forest Service Policy 2320:Forest Service Policy 2320:

• Locate fire camps, helispots, and other

temporary facilities or improvements outside of the wilderness boundary whenever feasible.

• Rehabilitate disturbed areas [caused by suppression activities] within wilderness to as natural an appearance as possible.

NPS General Mgmt. Policy NPS General Mgmt. Policy

• Fire management or suppression activities conducted within wilderness, including the categories of designated, recommended, potential, proposed, and eligible areas, will be consistent with the “minimum requirement” concept identified in Chapter 6 (of the General Management Policies) and Director’s Order #41: Wilderness Preservation and Management.

NPS Policy - Directors Order 41NPS Policy - Directors Order 41

• The park's fire management and wilderness management plans must identify and reconcile the natural and historic roles of fire in the wilderness, and will provide a prescription for response, if any, to natural and human-caused wildlfires.

Wilderness Fire Management Policy

Objectives• Whenever possible, scrutinize the

use of motor vehicles, motorized equipment, mechanical transport, and aircraft in support of suppression activities.

Wilderness Fire Management Policy

Objectives Whenever possible, scrutinize the use

of motor vehicles, motorized equipment, mechanical transport and aircraft in support of suppression activities.

Activities that may have longer-term Activities that may have longer-term impacts, such as retardant drops, line impacts, such as retardant drops, line construction, and dozer lines should be construction, and dozer lines should be minimized. minimized.




Land Management Plans (LMP)Land Management Plans (LMP)

Fire Management Plans (FMP)Fire Management Plans (FMP)

1.Provide wilderness input to help address the opportunities for natural fire in wilderness.

2.Ensure that wilderness law and policy is included in planning and implementation.

3.Help create the direction for management of fire in wilderness

Wilderness Considerations Roles for the Wilderness Resource

Advisor

The Wilderness Checklist for Fire Planning

Fire Management Toolboxhttp://www.wilderness.net/toolboxes


PURPOSE:

The purpose of this document is to provide wilderness managers with a checklist of topics, issues and concerns to consider when involved in preparation or review of the LMP or FMP.

The Wilderness Checklist for Fire Planning The

1. WILDERNESS ACT (P.L. 88-577)

Is the LMP consistent with or does the LMP specifically cite the relevant statutes from the Wilderness Act of 1964 or subsequent wilderness legislation?


2. WILDERNESS POLICY

Does the LMP specifically cite the relevant direction for fire in wilderness from agency policy?

–the natural role of fire –use of prescribed fire


3. AREA/REFUGE/FOREST/PARK PLAN LANGUAGE

Is there appropriate language in the LMP that:

–addresses the natural role of fire–considers the full range of management responses


4. DESIRED CONDITION

Does the LMP have goals for fire in wilderness consistent with the desired condition and the Wilderness Act?

Additionally, does the LMP address the desired outcome to preserve natural conditions ?

– wilderness generally appears to have been affected primarily by the forces of nature with the imprint of human work substantially unnoticeable


5. MULTI-JURISDICTION

Does the FMP address multi-jurisdictional issues and coordination needs to facilitate appropriate wilderness fire management?


6. ASSIGN A RESOURCE ADVISOR

Does the FMP require assignment of a Wilderness Resource Advisor (WRA) to wilderness fires under the Delegation of Authority letter


7. FIRE MANAGEMENT ACTIVITIES

Does the FMP address the objective to conduct all fire management actions in wilderness in a manner compatible with overall wilderness management objectives?


8. MINIMUM IMPACT STRATEGIES AND TACTICS (MIST)

Does the FMP address MIST guidelines specific to your wilderness:

–bear food storage or other safety concerns–listed species–invasive species–archaeological sites –other???


9a. MINIMUM REQUIREMENT PROCESS

Does the FMP recognize that fire management related exceptions for temporary roads or structures, or use of motorized equipment or mechanical transport must be: (1) the necessary and required action for administration of wilderness (2) the action that has the least adverse effects on wilderness as directed in the Wilderness Act, Section 4(c)?


9b. MINIMUM REQUIREMENT PROCESS

Does the FMP utilize a Motorized Equipment –Mechanical Transport Evaluation and Approval Process?


10. BURNED AREA EMERGENCY REHABILITATION (BAER)

Does the FMP address the objectives for conducting BAER in wilderness?

–Under what circumstances would there be any restoration measures other than natural recovery?–What are the standards for seeding, mulching, erosion control, etc.?


11. RESOURCE CONSTRAINTS

Does the FMP (Wilderness Polygon) address specific wilderness resource concerns such as fire management effects to the wilderness resource such as:

–heritage/cultural–wildlife and fisheries–hydrology and soils–invasive species–threatened, endangered, or sensitive species–other issues unique to the wilderness


11. RESOURCE CONSTRAINTS

Does the FMP (Wilderness Polygon) address specific wilderness resource concerns for Outfitter and Guide (commercial services) operations, recreation, and public safety ?


12. IMPROVEMENTS

Does the FMP list or reference improvements such as grazing allotments fences, administrative sites, bridges, stock tanks, etc.?

Does the FMP provide objectives for these improvements during fire management activities?


13. WATER LOCATIONS

Does the FMP identify water sources inside/outside wilderness that are to be used/avoided for water dips?


14. HELISPOTS and FIRE CAMPS

Does the FMP identify helispots and spike camps locations outside of wilderness, whenever feasible ?

Does the FMP identify existing helispots and spike camps locations inside wilderness ?


15. FMP REVIEW AND REVISION

Does the FMP identify a wilderness staff role for review and revision of the FMP annually ?


16. LINE OFFICER APPROVAL

Does the FMP identify the agency administrators (line officers) who have authority for the approval of motorized or mechanical use per agency direction ?


PART II Management Efficiency

–Pre-planning information to gather

–Training needed


Fire Management Toolbox

http://www.wilderness.net/toolboxes

Documents

Wilderness Considerations for Fire Resource Advisors Wilderness Fire Resource Advisor Training Southern Region - 2011