On January 31, 2006 over 300 fire managers and practitioners from the NPS, USFS, BLM, BIA, USFWS and the Nature Conservancy gathered in Albuquerque, New Mexico to discuss wildland fire use (WFU) history, management and program direction.
The Interagency Wildland Fire Use Workshop marked a turning point in the management of WFU in the US. There was standing room only-the conference attracted a lot of interest from a wide spectrum of land management professionals-from Forest Supervisors who see WFU as a way to cut the cost of fire suppression to smoke jumpers looking to market their skills in a changing fire management world.
A series of presentations led the participants through discussions of WFU history, policy, field program development, Incident Management Team management, WFU module standards, smoke, decision support, planning and resource integration.
Early history of WFU-the Pioneers speak
A high point was the presentation by early fire use pioneers Dave Bunnell and Dave Aldrich who reminded us that in the early days, supporters of fire use could have met in a "broom closet". They had the courage of their convictions to make WFU a fact. The first "WFU" occurred in the Selway-Bitterroot Wilderness in Idaho in 1972. Documentaries created by the media showing the long term benefits of the 1988 Yellowstone fires were the main constituency builder for WFU with the public. They also said that we need to be outcome driven--an 88 fire prevents an 02 escape. Our WFU public messages should use science, outputs and outcomes as the basis for public education. Not nearly enough within the public understand the value of the WFU program. Our future lies with best quantitative science, artful interpretation of outcomes, recognition of highest consequences, acceptance of reasonable risk, and teamwork
Policy Evolution
Tom Zimmerman talked about how policy changes happen as a result of catastrophic events. We need strategies for restoring ecosystems within the WUI as well as wilderness. We need to integrate cost efficiency and organizational learning. Future policy needs: guides organizational activities, authoritative and flexible, deal with program management issues, don't rely solely on rule based policy. Einstein quote: Problems cannot be solved using the same thinking that created them
* Appropriate Management Response (AMR) embraces all actions from monitoring to suppression
* Ignition source-exclude human
* Clarification on fires burning together
* Fires starting on private lands-decision process, funding limitations, liability
* FUMT (Fire Use Management Teams)-increasing capabilities to meet land management needs
* Use of rehab funds on WFU-not available now, but needs to be
* Recognize wildland fire's ability to respond to land management objectives
* Accomplishment tracking
* Innovation-creativity and flexibility
* Organizational learning
* Program leadership
Smoke Management
The states can charge money according to emissions-managers can get emission credits to implement WFU by doing biomass utilization instead of burning materials during forest thinning activities. New 24 hour standard for PM 2.5 (Particulate Matter 2.5 microns in diameter or smaller) is 35 micrograms per cubic meter. They are recommending that prescribed fire and WFU not be included in PM 2.5 guidelines according to an EPA "Exceptional Events Rule". For better smoke management-enhance training requirements, monitoring and predictive services. 25-30 million acres historically burned in US.
Communication
We need a clear policy with the same, consistent message. Must use the best available science according to how much is appropriate for decision making. Ability to comply with regulatory requirements like smoke. Resource availability for WFU-dedicated resources or better mobilization and training. There is only Appropriate Management Response for each wildland fire-suppression and WFU are equal responses to wildland fire management. Fire Use Working Team website WFU talking points should include both WFU as a maintenance and restoration tool Great information tool for WFU-www.fs.fed.us/r4/caribou-targhee/fire/fire_use
Be pro-active with WFU fire information. Educate the media.
Promote fire adapted human communities reading the Quadrennial Fuels and Fire Review is recommended.
FUMTs, WFU Modules, Workforce Capacity
There are currently 7 FUMTs (Fire Use Management Teams), 19 WFU Modules, 50 LTANs (Long Term Fire Behavior Analysts). We need FEMOs (Fire Effects Monitors). Encourage biologists and other firefighters to become FEMOs. We have 35-40 IMTs (Incident Management Teams) which includes about 17 Type 1 teams. There will be two full time NIMO teams (new incident management teams). We need to build workforce capacity to support WFU.
Wilderness
Within USFS wilderness stewardship-include WFU. Develop pride using a vintage tool
Management Incentives
Fire use is one of the least rewarded managerial actions.-figure out a reward for managers for fire use risk taking. Incentives for WFU-emphasize drastic changes in ecosystem w/o fire.
Monitoring and Predictive Services
GACCs (Geographic Area Coordination Centers) need to offer more updated predictive services. The Wildland Fire Decision Support System will integrate WFSA (Wildfire Situation Analysis) and WFIP (Wildland Fire Implementation Plan).
Do direct observation of fire behavior to correlate to fire effects. Don't overload fire programs with unnecessary research. Keep a few people in camp to be data archivers-can set up camera to get real time fire behavior observations with Rapid Response Teams.
WFU Planning
Use fire effects map library for size up and to set fuel treatment priorities
www.leopoldwilderness.net
USFS and other agency comments on WFU
USFS is moving the WFU program outside of wilderness. They are blurring the distinction between WFU and suppression and Rx fire-merging positions, maintain currency maintain multiple pathways for maintaining and getting qualifications. Need to change reporting of WFU at regional level so line officers get credit for acres. WFU is an integral part of line officer job. Incorporate into line officers evaluation criteria. FS may rate line officers at how well they take WFU risk or if they just step back and suppress-extra $ for suppression taken out of unit budget-OMB constraints-will look at cost of fire mgt.
WFU program on every acre is innocent until proven guilty
We should encourage "Fire adapted line officers" as well as communities.
Shift should be from firefighters to fire managers even at the lowest level.
Line officers make decisions for resource benefit for other programs they need to expand that active oversight to wildland fire.
BLM: in Alaska all fires within Limited fire management option zones and modified after the conversion date will be managed as WFU. WFU is being looked at to solve some escalating funding issues. Create incentives for managers to be able to use WFU.
BIA-not a big player-a lot of RX fire experience
USFWS-many Fire Management plans are being approved to implement Fire Use within wildlife refuges. Alaska refuges have been successfully implementing WFU. There is a potential for millions of acres this summer implemented as WFU by Refuges in Alaska.
Office of Wildland Fire Coordination in Washington-WFU is a buzzword and there is strong support at the Deputy Secretary level. Try to make changes at lower levels first. Do aggressive public education.
Environmental/Conservation Group Coordination. Ed Brunson-think about role for the Nature Conservancy and state in WFU how to think about for future engagement.
Get environmental groups involved at local level.
Other Comments:
We need one fire management workforce trained in all aspects of fire mgt.
The way we take credit for, fund and report WFU in relation to other hazard fuel reduction-all agencies need to be the same.
Planning and managing fires across boundaries-- ID current policy options.
Incentives for participation on teams
Performance element for line officers to require participation in fire management
Wildland Fire Implementation Guide
Dan Buckley from the National Park Service led a discussion on the Wildland Fire Implementation Guide that emerged in spring of 2005. This document shows WFU practitioners and managers how to complete a Wildland Fire Implementation Plan. Experienced audience members critiqued the document, which only has been used one field season. One of the major critiques was: When a wildland fire has progressed to a Stage 3 WFIP, but then because of weather, fire behavior or other factors no longer needs to be managed under a Stage 3 complexity-the unit should be able to downgrade management for that incident to an ICT4 (Incident Commander Type 4) from a FUMA (Fire Use Manager). The implementation plan and chart will be changed so it accommodates ramping down needs as well as ramping up. For now, the narrative within the WFIP can be used to document the need for an ICT4 instead of a FUMA.
Management Action Points (MAPs) can be temporal or spatial. They can be shown on maps as a circle around value at risk. MAPs can also be a point in time.
Objectives are not now included in the WFIP Stage 1 to reduce paperwork-Tom Zimmerman, one of the crafters of the guide, indicated that this could be included in future versions of the guide.
Institutionalize AAR process in WFU
Breakout Session results
Specific topics were carried over to working session breakout modules where participants developed short and long term action items. Break out groups identified action items, such as white papers on policy change. These action items will be brought to the attention of high level policy makers by Agency representatives within the group
* Fire Use Modules: By the end of March they will have an interagency Fire Use Module guide available. They will look into standardizing wilderness ethics for WFU module operation around the country and standardize vehicle configuration.
* Policy Direction:
Eliminate the distinction between WFU and other unplanned ignitions
Allow more than one objective for a fire
Need mechanism to pay for damage from a WFU
Clarify designation of WFU for smoke management-it is not prescribed fire
Use same terminology for WFU and suppression fires
* Jump starting a program: National IDIQ (Indefinite Delivery/Indefinite Quantity) contracts for specialized skills needed to do WFU should be established as a national contract that everyone can draw from. Unit new to WFU should consider bringing up a WFU team or module to learn from.
* Meeting Resource Objectives: practitioners and managers need to do additional up front planning for Wildland Fire Implementation Plans written in summer in their Fire Management Plans and other analysis done in the off season-identify and map MMAs (Maximum Manageable Areas), values at risk, and MAPs. Game fire behavior to test MMAs-put values at risk on portable external hard drive in preparation for WFU in summer. Develop common public language so we can manage across boundaries. Have staff discussions during winter about the development process of the WFIP. Develop monitoring plans and protocols before the season.
Concluding Thoughts
Most importantly-WFU is one of a range of "appropriate management responses" to wildland fire. These appropriate responses range from occasional surveillance to intensive fire control. One of the clear messages is that the Office of Management and the Budget acknowledges WFU as a way to lower the skyrocketing costs of fire suppression that nothing has been able to achieve in the history of fire management.
The role of fire is restoration. WFU is a way that we "redeem our responsibilities to the landscape" and is the most attainable landscape strategy. WFU can result in "sustainable restoration based industry"-- Chips for electricity generation, mouldings, shavings for animal bedding, The White Mountain Stewardship contract of 150,000 acres in Arizona was awarded and will produce electrical generation
Restoration of ecosystem-reduce costs of suppression in the long term. How skillful can we manage the program outside of wilderness-need to build the capacity for sound risk management-when in doubt-ask for help
Need to integrate all risk-in the future, hurricanes and fires will happen at the same time.Fire control is only a one dimensional program.
Official notes from workshop are available at
http://nifc.boise.wirestone.com/fuels/fuels.v20/index.html