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

4. 1.Understand Wilderness management principles in relation to fire management. 2.Understand the “Authority of the Resource” management technique. Objectives:

5. 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

6. PERCEPTIONS … All Wilderness Resource Advisors

7. Assumptions... AllFirefighters

8. There are complex issues, and confusing signs

9. Wilderness Fire Management is a Balancing Act

10. Necessary fire management activities Wilderness resource protection needs Wilderness Fire Management

11.  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

12. Signed by President Johnson on September 3, 1964

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

14. 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…”  “…managed to preserve natural conditions…”

15. 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

16. 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.”

17. 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.

18. 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

19. 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

20. 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

21. “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

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

23. 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

24. Fire Control vs. Fire Management

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

26. 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

27. 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 ?

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

29. 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

30. 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

31. 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. Applies to fire management activities.

32. Determining the Minimum 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/

33. 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?

34. Determining the Minimum Requirement 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?

35. Wilderness Fire Management Determining 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.

36. 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.

37. 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/

38. Wilderness Fire Management Determining the Minimum Requirement and Documenting the Decision Examples: 1)BWCAW Matrix and Reporting Form 2)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/

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

40. Preferences for Limiting Impacts Long 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

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

42. 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

43. Wilderness Management Determining the Minimum Requirement Example – Spike and coyote camps 1) Is the camp necessary in wilderness ? 2) What is the minimum necessary development ?

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

45. 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

46. Wilderness Fire Management Information and Education

47.  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.

48. 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

49. 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:

50. 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/

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

52. 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:

53. Wilderness Resource Advisor Tips 1.Know your role with the Incident Mgmt. Team, 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.

54. “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

55. Remember that the essential principle of fire management is always the top priority in wilderness too. “Do not compromise firefighter or public safety”

56. The End

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

59. Federal Wildland Fire Policy Guiding Principles First and foremost is: “Firefighter and public safety is the first priority in every fire management activity.”

60. 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.” Federal Wildland Fire Policy Guiding Principles

61. The third principle is: “Fire management plans, programs, and activities support land and resource management plans and their implementation.” Federal Wildland Fire Policy Guiding Principles

62. Suppression actions can have a significant impact on the Wilderness resource. Federal Wildland Fire Policy Application to Wilderness Introduction of unnatural elements Buildup of unnatural fuel conditions

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

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

65. 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.

66. 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.’

67. 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.

68. 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.

69. 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.

70. 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.

71. Wilderness Fire Management Policy Objectives Whenever possible, scrutinize the use of motor vehicles, motorized equipment, mechanical transport, and aircraft in support of suppression activities.

72. 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 impacts, such as retardant drops, line construction, and dozer lines should be minimized.

74. Federal Wildland Fire Policy Application to Wilderness Fire Management Toolbox at: http://www.wilderness.net/toolboxes/ Land Management Plans (LMP) 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

75. Wilderness Considerations Roles for the Wilderness Resource Advisor The Wilderness Checklist for Fire Planning Fire Management Toolbox http://www.wilderness.net/toolboxes

76. The Wilderness Checklist for Fire Planning 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.

77. 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?

78. The Wilderness Checklist for Fire Planning 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

79. The Wilderness Checklist for Fire Planning 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

80. The Wilderness Checklist for Fire Planning 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

81. The Wilderness Checklist for Fire Planning 5. MULTI-JURISDICTION Does the FMP address multi-jurisdictional issues and coordination needs to facilitate appropriate wilderness fire management?

82. The Wilderness Checklist for Fire Planning 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

83. The Wilderness Checklist for Fire Planning 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?

84. The Wilderness Checklist for Fire Planning 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???

85. The Wilderness Checklist for Fire Planning 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)?

86. The Wilderness Checklist for Fire Planning 9b. MINIMUM REQUIREMENT PROCESS Does the FMP utilize a Motorized Equipment – Mechanical Transport Evaluation and Approval Process?

87. The Wilderness Checklist for Fire Planning 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.?

88. The Wilderness Checklist for Fire Planning 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

89. The Wilderness Checklist for Fire Planning 11. RESOURCE CONSTRAINTS Does the FMP (Wilderness Polygon) address specific wilderness resource concerns for Outfitter and Guide (commercial services) operations, recreation, and public safety ?

90. The Wilderness Checklist for Fire Planning 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?

91. The Wilderness Checklist for Fire Planning 13. WATER LOCATIONS Does the FMP identify water sources inside/outside wilderness that are to be used/avoided for water dips?

92. The Wilderness Checklist for Fire Planning 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 ?

93. The Wilderness Checklist for Fire Planning 15. FMP REVIEW AND REVISION Does the FMP identify a wilderness staff role for review and revision of the FMP annually ?

94. The Wilderness Checklist for Fire Planning 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 ?

95. The Wilderness Checklist for Fire Planning PART II Management Efficiency –Pre-planning information to gather –Training needed

96. The Wilderness Checklist for Fire Planning Fire Management Toolbox http://www.wilderness.net/toolboxes