1. Aldo Leopold Wilderness Research Institute
Organizational Characteristics that Contribute to Success in Engaging the Public to Accomplish Fuels Management at the Wilderness/Non-Wilderness Interface
Katie Knotek
Alan Watson
USDA Forest Service
Aldo Leopold Wilderness Research Institute
Katie Knotek is a Research Associate in Social Science with the Aldo Leopold Wilderness Research Institute, Rocky Mountain Research Station, USDA Forest Service. Alan Watson is the Research Social Scientist with the Aldo Leopold Wilderness Research Institute, Rocky Mountain Research Station, USDA Forest Service.
Funding for this research was provided by the National Fire Plan, as well as the Bitterroot Ecosystem Management Research Project and the Aldo Leopold Wilderness Research Institute, Rocky Mountain Research Station, USDA Forest Service. The research was conducted in cooperation with the Rocky Mountain Ranger District of the Lewis and Clark National Forest.
This presentation was given at the “1st Fire Behavior and Fuels Conference: Fuels Management – How to Measure Success,” March 28-30, 2006, Portland, OR.

2. Introduction
Current context of fuels management signifies need for increased public outreach
Public must be informed about and engaged in decisions concerning fuels management
How can we be successful in engaging the public to accomplish fuels management?
Recently there has been greater awareness that the urgent, complex and oftentimes contentious nature of fuels management signifies a need for increased public outreach by fire management organizations.
Even our national initiatives on fire and fuels management, such as the National Fire Plan and the Healthy Forests Initiative, emphasize the need for the public to not only be informed about, but also engaged in decisions concerning fuels management.
This points to the question, “How can we be successful in engaging the public to accomplish fuels management?”
In this presentation, research is presented suggesting a specific set of organizational characteristics that may contribute to successful public engagement.

3. Learning From High Reliability Organizations
A “high reliability organization” is successful when working in a high-risk situation
Performance is attributed to managing with “mindfulness” (a focused state of attention)
Recent application of “mindfulness” to wildland fire use and prescribed fire operations
Weick and Sutcliffe (University of Michigan Business School) have conducted research to understand how some organizations that work in high-risk situations are successful, often experiencing few mishaps, like in wildland firefighting, nuclear aircraft carriers, air traffic control systems, and emergency medical treatment.
Weick and Sutcliffe refer to these organizations as high reliability organizations and attribute their performance to managing with mindfulness, or a particular focused state of attention.
There is a lot that fire and fuels management can learn from these organizations and the benefits of managing with mindfulness. For example, there has recently been a move to increase awareness and adoption of mindfulness processes exhibited by high reliability organizations to better implement wildland fire use and prescribed fire operations. Two national interagency workshops have been held (Sante Fe, NM 2004; Jacksonville, FL 2005) focusing on this application of the concept of mindfulness, and a third workshop, hosted by Forest Service Region 1, will be held in May 2006 in Missoula (Contact the Lessons Learned Center for more information about these workshops).

4. Application of “Mindfulness” to Public Outreach
Apply concept of “mindfulness” to public outreach
Managing public outreach can be described as high-risk
“Mindfulness” may help mitigate risks and more successfully engage the public in fuels management
It may also be beneficial for fire management organizations to apply the concept of mindfulness to public outreach.
Just as managing a fire or fuels operations can be described as high-risk, managing public outreach can also be characterized as high-risk, often involving contentious public meetings, withdrawal of key publics from participation, harassment of personnel within the organization, negative editorial or opinion pieces in reference to the organization, and litigation.
Application of the concept of mindfulness to public outreach might just be what is needed to better enable fire management organizations to mitigate social risks and more successfully engage the public in fuels management.

5. Case Study
Apply “mindfulness” to public outreach for a specific fuels management project
Use framework of mindfulness processes to guide analysis of public outreach
Provide a framework to guide fire management organizations in engaging the public to accomplish fuels management
In this research, a case study was conducted applying the concept of mindfulness to public outreach for a specific fuels management project.
Objectives were to use a framework of mindfulness processes, or organizational characteristics, to guide analysis of a fire management organization’s public outreach during the planning and implementation of a specific fuels operation, and in turn provide a framework that could help guide all fire management organizations in engaging the public to accomplish fuels management.
This specific case focused on the Forest Service as a fire management organization and the South Fork of the Sun River Prescribed Burn in Montana as a specific fuels operation.

6. South Fork of the Sun River Prescribed Burn
Prescribed burn initiated inside and along wilderness boundary
Wilderness/non-wilderness interface
Indicated application of “mindfulness” to public outreach is appropriate and important
The first phase of the South Fork of the Sun River Prescribed Burn was initiated, in the fall of 2003, by the Rocky Mountain Ranger District of the Lewis and Clark National Forest. The burn is being conducted inside and along the boundary of the Scapegoat Wilderness.
One purpose of the burn is to make the non-wilderness side of the wilderness boundary more defensible from wildfire, because the Scapegoat Wilderness interfaces with both public and private lands, including roadless areas, ranches, outfitter/guide operations and recreational residences.
The complexity of use in this interface area indicated both the appropriateness and importance of the application of mindfulness to public outreach for this particular fuels operation.

7. Methods Case study research design Qualitative methods
In-depth interviews (Winter and Spring 2005)
Sample of agency personnel and non-agency public representatives
Analysis of interview transcripts
As mentioned, a case study research design and qualitative methods were used to facilitate the research.
Specifically, in-depth interviews were conducted (winter and spring 2005) with agency personnel on the Lewis and Clark National Forest and non-agency public representatives from local communities.
A framework of mindfulness processes along with a qualitative data analysis program were used to guide analysis of the interview transcripts, which focused specifically on agency and public perceptions of the Forest Service’s public outreach for the prescribed burn.

8. Framework of Mindfulness Processes
1) Recognizing potential barriers to accomplishment of management objectives
2) Resisting simplification of information or interpretations
3) Ensuring situational awareness of events as they occur
4) Being prepared to respond to and recover from unexpected events
5) Calling upon appropriate expertise in decision- making and management efforts
The framework of mindfulness processes that was used in analysis was adapted from Weick and Sutcliffe’s research on high reliability organizations, which indicates there are five central processes or organizational characteristics that produce mindfulness . . .
Each of these processes are described in detail on the following slides, as examples of interview excerpts from the analysis are presented in order to demonstrate how the concept of mindfulness can be applied to the Forest Service’s public outreach efforts for the South Fork of the Sun River Prescribed Burn.

9. Recognizing Barriers to Accomplishment of Management Objectives
“But from my perspective, I thought what they did worked well, partly because they did it in advance. A lot of times people say, and this was a big criticism during the Canyon Creek Fire, we just didn’t know what was coming … Like you said, this started in ’97. It happened in That’s a long time and a lot of comment before the actual trees started to burn.”
(Public Representative)
The first mindfulness process, recognizing barriers to accomplishment of management objectives, means being consistently mindful of potential operational failures or mistakes. Practicing this process makes it possible for an organization to identify and mitigate small barriers, that, if ignored, could complicate their objectives.
This interview excerpt from a local community member is one example of how this mindfulness process applies to a particular aspect of the Forest Service’s public outreach for the prescribed burn.
(Read Quote)
In conducting early outreach, it seems the Forest Service recognized and mitigated a potential barrier to their public outreach objectives, namely the public being uninformed or “blindsided” by the agency’s intentions.

10. Resisting Simplification of Information or Interpretations
“… we have all these checks in process to be as safe as possible. And sometimes things are going to go south on us … The fire could get out of our control, and we know that … put that on the table early on in the process, not in terms of sugar coating … (the District Ranger) did a good job of that. (He) was very real … that’s a good take-home message for other people, other units, other agencies. Sometimes we’re not very good about talking about the real risks.”
(Agency Representative)
The second mindfulness process, resisting simplification of information or interpretations, means intentionally simplifying less and seeking ways to perceive and discern more about a management situation. This allows an organization to create a more holistic, detailed understanding of the context they are working within.
An interview excerpt from a Forest Service employee that was interviewed provides an example of how this mindfulness process applies to a certain aspect of the agency’s public outreach..
(Read Quote)
In communicating directly with the public about the risks associated with the prescribed burn, the Forest Service seemed to have resisted simplification of a particular aspect of information related to public outreach.

11. Ensuring Situational Awareness of Events as They Occur
“… (the District Ranger) was very proactive in getting community involvement … he developed a PowerPoint and he went around to various organizations. He talked to his county commissioners … He briefed the governor’s staff … He talked to TV stations. He did radio call-in interviews with KGPR and the local station that’s in Augusta, KMON.” (Agency Representative)
The third mindfulness process, ensuring situational awareness of events as they occur, means focusing attention on the front line of an operation and being aware of both planned and unexpected events. By paying attention to events as they unfold, an organization is more able to reduce uncertainty and make operational adjustments as needed.
Another interview excerpt from a Forest Service employee that was interviewed provides an example of how this mindfulness process relates to the agency’s public outreach.
(Read Quote)
In providing briefings to key segments of the public, such as county commissioners, the governor’s staff, and the media prior to implementation of the burn, it seems the Forest Service was acting to ensure situational awareness in managing public outreach.

12. Being Prepared to Respond to and Recover from Unexpected Events
“And when the burning window opened up it was the same week we had scheduled … the Forest Supervisor and the Forest Planner and (Public Affairs Officer) were flying out to Washington, D.C. because we had briefings with our senators and congressmen … so we had to call in other people. And (an employee) from the regional office came over …”
(Agency Representative)
The fourth mindfulness process, being prepared to respond to and recover from unexpected events, means moving beyond a simple anticipation of the unexpected to a greater focus on how, once an event occurs, it can be managed. This resiliency enables an organization to function responsively and facilitate management even when faced with operational obstacles.
This interview excerpt, again from a Forest Service employee, provides an example of this mindfulness process as it applies to another aspect of the agency’s public outreach.
(Read Quote)
In finding a qualified replacement for the Forest Public Affairs Officer, which happened to be an employee within the region who had experience in both public relations and fire, the Forest Service seemed prepared to respond this unexpected event, as well as others that may have arisen.

13. Calling Upon Expertise in Decision-Making and Management Efforts
“I think that they demonstrated to people that the local Forest Service personnel … were local faces that were well-known that were going to be connected to this burn and that they were very credible and responsible and accountable. And I think people sensed that, that there was going to be an enormous amount of local accountability … it wasn’t going to be some nameless face for a federal project.”
(Public Representative)
The final mindfulness process, calling upon appropriate expertise in decision-making and management efforts, means personnel with the most expertise, regardless of their position within the organization, are utilized. This does not preclude the fact that certain decisions must be made and operations led by personnel in specific positions.
Another interview excerpt from a local community member shows how this mindfulness process relates to a unique aspect of the agency’s public outreach.
(Read Quote)
In utilizing local employees on the Rocky Mountain Ranger District, people well known in the local communities, like the District Ranger and the Fire Management Officer, the Forest Service seemed to have called upon appropriate expertise in their decision-making and management efforts for this particular prescribed burn.

14. Conclusions
The concept of “mindfulness” can be applied to public outreach for fuels management
Possible to identify and describe public outreach efforts according to framework of mindfulness processes
Application of the concept of “mindfulness” seems effective in guiding analysis
In conclusion, this presentation provides a very brief overview of how the concept of mindfulness can be applied to public outreach for fuels management.
As shown, it is possible to identify and describe an organization’s public outreach efforts according to a framework of the five central mindfulness processes, or organizational characteristics, exhibited by high reliability organizations.
Thus, application of the concept of mindfulness seems to be effective at least in guiding analysis of public outreach conducted by a fire management organization. The usefulness and effectiveness of this application as a management tool to help guide fire management organizations in conducting public outreach and engaging the public in fuels management will have to be determined by managers themselves.

15. Management Application
Use framework of mindfulness processes as a “checklist” to evaluate public outreach
Brainstorm public outreach efforts
Incrementally assess individual and group behavior in public outreach
Evaluate and learn from management efforts
In thinking about how this application might be useful as a management tool, it is possible that fire management organizations could use the framework of mindfulness processes as sort of a “checklist” before, during, and following their public outreach efforts.
For example, they could use the framework as a brainstorming tool when planning public outreach efforts. They could proactively think about how they might be mindful of potential barriers to accomplishment of their management objectives.
They could also use the framework while they are actively conducting public outreach to incrementally assess individual and group behavior in managing public outreach. They might critique their efforts to resist simplification of information or interpretations or to ensure situational awareness while conducting public outreach.
Finally, they could use the framework following public outreach efforts to evaluate and learn from their efforts in a fashion similar to an After-Action Review.
Using this framework of mindfulness processes in these ways would likely help to improve understanding and practice of organizational characteristics that contribute to success in engaging the public to accomplish fuels management.

16. Aldo Leopold Wilderness Research Institute
Katie Knotek
Aldo Leopold Wilderness Research Institute
Please contact Katie Knotek at the Aldo Leopold Wilderness Research Institute with questions regarding this research.