2. This document is contained within the Fire Management Toolbox on Wilderness.net. Since other related resources found in this toolbox may be of interest, you can visit this toolbox by visiting the following URL: http://www.wilderness.net/index.cfm?fuse=toolboxes&sec=fir e. All toolboxes are products of the Arthur Carhart National Wilderness Training Center.

5. Wilderness Considerations for Fire Resource Advisors Rocky Mountain Region Wilderness Manager’s Winter Meeting January 21-24, 2003 Wilderness Fire Resource Advisor Training 2007

6. 1.Become familiar with wilderness law and policy and the role of fire management in wilderness. 2.Understand the wilderness resource and how decisions are made related to fire management in wilderness. 3.Examine the wilderness challenges for the Fire Resource Advisor task. 4.Provide tools to be used in wilderness fire management. Objectives:

7.  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

8. Signed by President Johnson on September 3, 1964

9. The Wilderness Act:  Establishes a National Wilderness Preservation System made up of federal lands.  Identifies a process for areas to be added through subsequent legislation.  Provides overall definition of what wilderness is.  Provides general direction and identifies responsibility for management of wilderness.  Identifies special provisions for non- conforming uses For more information on The Wilderness Act of 1964 visit: http://www.wilderness.net/

10. Currently there are 702 areas containing approximately 107 million acres

11. National Wilderness Preservation System - Percentage by Agency 5% 19.8% 42% 33.2%

12. The Wilderness Act Title Section 1 - short title policy and definition Section 2 - policy and definition Section 3 - extent of system use of wilderness areas Section 4 - use of wilderness areas Section 5 - state and private lands Section 6 - gifts and contributions Section 7 - annual reports

13. The Wilderness Act Purpose of Wilderness Section 2 (a) … it is hereby declared to be the policy of the Congress to secure for the American people of present and future generations the benefits of an enduring resource of wilderness.

14. Benefits of an Enduring Resource Social, Biophysical, Cultural

15. Definition of Wilderness Section 2(c)  “…man is a visitor…”  “…retaining its’ primeval character and influence…”  “…without permanent habitation…”  “…managed to preserve natural conditions…”

16. Definition of Wilderness Section 2(c)  “…affected primarily by the forces of nature…”  “…man’s work substantially unnoticeable…”  “…outstanding opportunities for solitude or primitive recreation…” Photo by Stephen Peel

17. 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

18. 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.”

19. Agency Responsibility Wilderness Management Agency 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.

20. The Four Statutory Qualities of Wilderness Character *  Undeveloped  Untrammeled  Natural  Outstanding 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

21. Four Statutory Qualities of Wilderness Character for Fire Management  Undeveloped  Untrammeled  Natural  Outstanding opportunities for solitude or a primitive and unconfined type of recreation

22. Untrammeled = Unhindered Untrammeled = 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

23. “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

24. Reducing fuels to restore natural fire regimes and fire effects EXAMPLES OF MANIPULATION TO RESTORE NATURAL CONDITIONS IN WILDERNESS

25. 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

26. Fire Control vs. Fire Management

27. This used to be called “a disaster”. Fire and Wilderness

28. 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

29. Long-term fire suppression is an example of large-scale manipulation of natural conditions. Fire use creates, for some visitors, a less appealing and less natural appearing landscape Wilderness – Natural Appearing or Wild ?

30. The fire and the effects of the fire Fire and Wilderness – Natural role Smoke-air quality Erosion-sedimentation

31. Agency Responsibility The Wilderness Act Agency 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 managed  The National Fire Policy and agency fire and wilderness management policy describe implementation

32. The Wilderness Act Agency Responsibility Section 4 (c)  no temporary road  no use of motor vehicles, motorized equipment or motorboats  no landing of aircraft  no form of mechanical transport  no structure or installation EXCEPT

33. The Wilderness Act Agency 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.

34. Determining the Minimum Requirement The minimum requirement analysis is a two step process *

35. Determining the Minimum Requirement 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?

36. Determining the Minimum Tool 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?

37. Wilderness Fire Management Determining the Minimum Requirement 1) Determining if any action is necessary 2) Selecting the method, tool, or tactic which represents the minimum necessary administrative action.

38. Determining the Minimum Requirement The minimum requirement analysis is a two step process * * The Minimum Requirements Decision Guide http://www.wilderness.net/mrdg/

39. Wilderness Fire Management Determining the Minimum Requirement for Fire Management A lengthy analysis is not always possible or desirable in fire emergency situations. The Minimum Requirements Decision Guide (MRDG) is not designed for use in emergency situations

40. Wilderness Fire Management Determining the Minimum Requirement 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/

41. Wilderness Management Determining the Minimum Requirement Example - Method of transport

42. Preferences for Limiting Impacts Long term impacts vs. short term disturbances Aircraft use (if necessary) Preferred: Helicopter flights Helicopter landings and/or sling loads in natural openings Least acceptable: New constructed helispots

43. Wilderness Management Determining the Minimum Requirement Example - Suppression activities

44. Preferences for Limiting Impacts Long term impacts vs. short term disturbances Suppression activities (if necessary) Preferred: Natural fuel breaks Cold trailing Burnouts and backfires Wetlines and pumps Least acceptable: Constructed fireline

45. Wilderness Management Determining the Minimum Requirement Example - Spike and coyote camps

46. Determining the Minimum Requirement Long term impacts vs. short term disturbances Example - Restoration

47. Wilderness Fire Management Determining the Minimum Requirement Example - Restoration

48. Wilderness Management Determining the Minimum Requirement Example - Restoration

49. The Minimum Tool vs. the Minimum Requirement What really matters?

50. Subdivisions on the Wilderness boundary Threats from Natural Events Challenges for Fire Use Other Concerns for Wilderness Fire Management

51. Subsequent Wilderness Legislation Endangered American Wilderness Act of 1978  Added 17 new wilderness areas, 1.3 million acres.  These were areas that had been originally excluded because they were within “sight and sound” of cities.  Congress recognized value of ‘urban wilderness’

52. Wilderness Fire Management Information and Education

53.  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.

54. 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

55.  Explain why the use of MIST are needed based on wilderness resource issues; explain the reasons why it matters based on actual effects (“The Authority of the Resource”)  MIST = Most Intelligent Sensible Tactics  Capitalize on a ‘teachable moment’ for wilderness  Provide feasible alternatives to meet both wilderness and fire goals Use information and education to:

57. Wilderness Law and Policy - Key Points  The National Wilderness Preservation System was established in response to a concern over growing population and development.  The diversity of the system creates challenges to fire management because of size, shape and fuel types.  Subsequent legislation provides specific direction that needs to be considered along with the 1964 Wilderness Act.  Sections of the 1964 Wilderness Act and agency policy apply to fire management and the resource advisor role.

58. Wilderness Resource Advisor Tips 1.Know your role with the IMT, Agency Administrator, and others. 2.Be prepared to stand up and present your case for wilderness. 3.Understand the effects of fire and fire management activities in wilderness. 4.Allow and assist fire managers to do what they should, not what they could. 5.Be a credible wilderness advocate, not a zealot.

59. “Thousands of tired, nerve-shaken, over- civilized people are beginning to find out that going to the mountains is going home; that wilderness is a necessity; that mountain parks and reservations are useful not only as fountains of timber and irrigating rivers, but as fountains of life.” -John Muir

61. Agency Policy Fire Management in Wilderness Fire Management Toolbox at: http://www.wilderness.net/toolboxes/

62. BLM 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.

63. 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.’

64. 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.

65. 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.

66. 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.

67. NPS 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.

68. Agency Policy Application to Fire Whenever possible, scrutinize the use of motor vehicles, motorized equipment, mechanical transport, and aircraft in support of suppression activities.

69. Agency Policy Application to Fire  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 impacts, such as retardant drops, line construction, and dozer lines should be minimized.

70. Federal Wildland Fire Policy Application to Wilderness Fire Management Toolbox at: http://www.wilderness.net/toolboxes/

71. Continuing to suppress natural fires, causes a significant alteration to natural conditions. Federal Wildland Fire Policy Application to Wilderness

72. Suppression actions can have a significant impact to the resource. Federal Wildland Fire Policy Application to Wilderness

73. Federal Wildland Fire Policy Application to Wilderness Fire Management Toolbox at: http://www.wilderness.net/toolboxes/ Fire Management Plans (FMP) Utilize the: Wilderness Checklist for Fire Management Plans Provide wilderness input to help address the opportunities for natural fire in wilderness. Ensure that wilderness law and policy is included in planning and implementation.

75. The Authority of the Resource*  The Authority of the Resource 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/

76. Example WRA task: Need to locate the helispot in the opening ¼ mile west of the timbered ridge top location shown on the map Non-ART technique: Why? “ Because I’m the wilderness resource advisor and I have a delegation of authority that empowers me to make these decisions.” ART technique: Why? “Because taking advantage of the natural opening will eliminate the need to fell 20 trees. It’s the minimum necessary action to insure that when we leave here there will be no lasting impacts from our activities.”

77.  Explain why the use of MIST are needed based on wilderness resource issues; explain the reasons why it matters based on actual effects  MIST = Most Intelligent Sensible Tactics  Capitalize on a ‘teachable moment’ for wilderness  Provide feasible alternatives to meet both wilderness and fire goals Use of the Authority of the Resource technique allows the Resource Advisor to:

78. Resource of wilderness Physical Emotional

79. Values

80. Examples of Subsequent Legislation Designating Additional Wilderness Areas  Central Idaho Wilderness Act of 1980  Endangered American Wilderness Act of 1978

81. Central Idaho Wilderness Act of 1980  Established the “Frank Church River of No Return” Wilderness.  Provided specific direction (in addition to direction in 1964 Act) for managing that area, for example:

82. Allowed continued operation of airstrips Recognized private inholdings

83. Activities that would not normally be allowed in Wilderness but are allowed under certain circumstances, for instance: The Wilderness Act Special Provisions Section 4 (d)  Water conservation works, power projects, transmission lines, other facilities needed in the public interest  Grazing of livestock  Commercial services (outfitter guides)  Administrative sites

84. Wilderness Management Determining the Minimum Requirement Special Provisions