1. 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.

2. AMR – WFSA – WFIP “Acronym Central” Wilderness Fire Resource Advisor March 6, 2007 Mike Frary Assistant State Fire Management Officer Fuels & Fire Use USDI - Bureau of Land Management Colorado State Office

3. Fire Managers have been using the appropriate management response on wildfires for many years, often without knowing it, and almost always without calling it AMR. For example, the “10:00 am” policy was the appropriate response for it’s time, because policy did not allow otherwise.

4. The appropriate management response is exactly that; taking the actions (suppression or otherwise) that are appropriate given the laws, policy, socio-political situation, and environmental conditions that are in effect at a given point of time.

5. What Is A Wildland Fire? “Wildland Fire: Any non-structure fire that occurs in the wildland. Three distinct types of wildland fire have been defined and include wildfire, wildland fire use and prescribed fire.” “Wildland Fire Use (WFU): The application of the appropriate management response to naturally-ignited wildland fires to accomplish specific resource management objectives in predefined designated areas outlined in Fire Management Plans.”

6. Under current interagency fire policy, there are three types of fire. Prescribed fire is a planned management action for resource benefit. WFU and wildfires are both unplanned ignitions managed by the Appropriate Management Response (AMR). The management objective for these naturally ignited fire use fires is resource benefit. The management objective for wildfires regardless of ignition source is suppression. The tactics used for all types of fires may be similar and considered AMR.

8. Common AMR Strategies and Tactics and Tools

9. Full Perimeter Control This is the most commonly used strategy on wildland fires. Control lines are constructed around the entire perimeter of the fire. Roads, rivers and other barriers can be used in conjunction with constructed lines. In the end a physical barrier exists completely around the fire.

10. Point Protection This strategy involves protecting specific points from the fire while not actively trying to line the entire fire edge. Points being protected may be communities, individual homes, areas of high resource value, etc.

11. Large Scale Burnout This strategy involves selecting line locations or barriers that offer the best likelihood of successfully holding a fire, and then burning out the fuels in between the original fire and the planned control line. There are no limitations on the size of a burnout.

12. Monitoring This strategy may be used for many reasons. Depending on the conditions within the fire environment, the incident commander may determine that no action needs to be taken other than observing the fire spread on a regular basis.

13. Fuel Breaks Fuel breaks may be totally devoid of vegetation or may be shaded, in which some large over-story trees remain. Fuel breaks are often established prior to a fire season or fire event. The presence of a fuel break may serve as a control line, as part of point protection or as a trigger point in monitoring.

14. Use of Natural or Artificial Barriers Any type natural (rivers, streams, cliff lines, rock slides, etc.) or artificial (roads, dams agricultural fields, etc) barriers may be used as a component of any of the AMR strategies.

15. Community Treatments A slight twist on point protection, community treatments may involve actions within a sub-division or community to protect homes without actually building lines or conducting hose lays.

16. Slowing/Delaying Fire Spread This involves using any of a variety of actions to slow a fire spread and buy additional time in anticipation of a weather change, arrival of resources or other reasons.

17. Minimum Impact Tactics Any of a wide range of actions to minimize the appearance of fire management tactics. Includes such actions as flush cutting stumps, camouflaging stumps and bucked logs, dragging brush out of site of trails, etc. Several regions have developed guides and these should be utilized for additional assistance and direction.

18. Wildland Fire Use Managing a wildland fire for resource benefit is the definition of wildland fire use.Managing a wildland fire for resource benefit is the definition of wildland fire use. The management of a Fire Use fire may involve any or all of the tactics previously mentioned.The management of a Fire Use fire may involve any or all of the tactics previously mentioned. Additional evaluation of suitability for fire use is required within certain time frames of ignition.Additional evaluation of suitability for fire use is required within certain time frames of ignition.

20. DECISION MAKING: Wildland Fire Situation Analysis: Wildland Fire Situation Analysis: WFSA DECISION MAKING: Wildland Fire Situation Analysis: Wildland Fire Situation Analysis: WFSA

21. The WFSA Process: What are the reasons to initiate a WFSA? The WFSA Process: What are the reasons to initiate a WFSA? Wildland Fire escapes Initial Attack Wildland Fire Use escapes or exceeds prescription parameters Prescribed Fire escapes or exceeds prescription parameters Wildland Fire escapes Initial Attack Wildland Fire Use escapes or exceeds prescription parameters Prescribed Fire escapes or exceeds prescription parameters

22. Reasonable alternatives identified, analyzed and evaluated Evaluation criteria established Alternatives considered that minimize sum of estimated suppression cost + resource damage WFSA revised as conditions change The WFSA Process:

23. What are the common complaints about the doing a WFSA? Occupies key personnel during critical period Too complicated Can’t be done in a timely manner Too much un-needed or repeated documentation Inputs are “arbitrary and capricious” Occupies key personnel during critical period Too complicated Can’t be done in a timely manner Too much un-needed or repeated documentation Inputs are “arbitrary and capricious”

24. What are the common complaints about the doing a WFSA? Occupies key personnel during critical period (Part of the job, get over it!) Too complicated (see # 1!) Can’t be done in a timely manner (Good now is better than perfect later) Too much un-needed or repeated documentation (Remember who your boss is) Inputs are “arbitrary and capricious” (Your and the resource staff’s expertise and professional judgment is needed to fill in the gaps and is the best available information at the time) Occupies key personnel during critical period (Part of the job, get over it!) Too complicated (see # 1!) Can’t be done in a timely manner (Good now is better than perfect later) Too much un-needed or repeated documentation (Remember who your boss is) Inputs are “arbitrary and capricious” (Your and the resource staff’s expertise and professional judgment is needed to fill in the gaps and is the best available information at the time)

25. Why do a WFSA? 1.It is the document that gives guidance and direction to the Incident Commander from the line officer 2.It documents the decision thought process, including alternatives analyzed but not selected 3.It documents incident priorities and constraints 4.It documents that financial consideration was given in selecting the alternative

26. Close Out and/or After Action Review Objectives Met? Prepare WFSA Extended Attack Revise WFSA No Yes Implement Action

27. FEDERAL FIRE & AVIATION OPERATIONS 2004 ACTION PLAN Produce WFSA alternatives that display a full range of appropriate management response options. All alternatives must be developed with strong emphasis on cost accountability based on the values to be protected, with due consideration given to a minimum cost alternative.

28. Approval and Certification Thresholds USFS Threshold Value District Ranger<= $2M Forest Supervisor >$2M - <$10M, or Forest Supervisor Type 1 Team, or Forest Supervisor Area Command Regional Forester>$10M - <$50M Chief >$50M DOI (NPS - BLM – BIA - FWS) First Level Line Officer<=$2M Regional or State Director >$2M - <$5M Director >$5M

29. Approval and Certification Timeframes Initial WFSA must be approved prior to initiation of a new strategy and within 12 hours of a fire escaping initial action. Chief and Deputy Chiefs, Regional Foresters and Area Director: Certification of the WFSA must be completed with in 24 hours of escape of initial action, unless agreed to otherwise. Initial WFSA must be approved prior to initiation of a new strategy and within 12 hours of a fire escaping initial action. Chief and Deputy Chiefs, Regional Foresters and Area Director: Certification of the WFSA must be completed with in 24 hours of escape of initial action, unless agreed to otherwise.

30. Take Home The WFSA process requires a team effort, build the team prior to the fire Financial analysis has error, the objective is to make that error consistent in all of the alternatives Line officers need to be engaged before, during, and after the WFSA process

31. Why Do We Need Fire Use? Tool to treat land management objectives Recognizes the natural role fire plays in an ecosystem More accurately portrays actual or historic fire intensity and severity To not do it postpones a future, possibly worse and damaging fire Reduced risk to firefighters

32. Policy Statements Relevant To Wildland Fire Use

33. Federal Fire Policy (FFP) Says: “Wildland fire use, is a direct component of wildland fire management. It is a management action equal to wildfire suppression and thus, constitutes an emergency action. It receives consideration, management attention, and management policies equal to wildfire suppression,….”

34. WFU “Sideboards” “Only one management objective will be applied to a wildland fire. Wildland fires will either be managed for resource benefits or suppressed. A wildland fire cannot be managed for both objectives concurrently.” “If two wildland fires converge, they will be managed as a single wildland fire.”

35. “Human caused wildland fires will be suppressed in every instance and will not be managed for resource benefits.” “Once a wildland fire has been managed for suppression objectives, it may never be managed for resource benefit objectives.”

36. “Wildland fire use is the result of a natural event. The Land/Resource Management Plan, or the Fire Management Plan, will identify areas where the strategy of wildland fire use is suitable.”

37. “The Wildland Fire Implementation Plan (WFIP) is the tool that examines the available response strategies to determine if a fire is being considered for wildland fire use.”

38. “When a fire designated for wildland fire use is no longer achieving the intended resource management objectives and/or mitigation actions have failed, the fire will be declared a wildfire. Once a wildfire, it cannot be returned to wildland fire use status.”

39. WFU IS… An Appropriate Management Response. Not a “hands-off” or “let-burn” philosophy. Not a method to do away with wildland fire suppression actions. Not a prescribed burn.

40. Not restricted to the “back 40” or “Wilderness” type setting. Not implemented “automatically”. The Fire Management Plan sets prescriptive criteria and the Wildland Fire Implementation Plan determines the specific actions to be taken.

41. Not limited by land ownership or agency boundaries. Not always the answer to large fire cost containment.

42. The Land Management Plan Must Adequately address policy…Adequately address policy… Provide resource management direction as it relates to fire…Provide resource management direction as it relates to fire… Allow for a full range of management direction…Allow for a full range of management direction… Be broad, and not overly restrictive, more on this later…Be broad, and not overly restrictive, more on this later… Be dynamic and adaptable to changing conditions…Be dynamic and adaptable to changing conditions… Be realistic and based upon the best information and science available…Be realistic and based upon the best information and science available…

43. The Fire Management Plan Must Be tiered to the LMP…Be tiered to the LMP… Be designed to implement resource management direction as specified in the LMP…Be designed to implement resource management direction as specified in the LMP… Allow for a full range of fire management options where applicable…Allow for a full range of fire management options where applicable… Describe a specific set of conditions (prescription/triggers) that determine fire management options…Describe a specific set of conditions (prescription/triggers) that determine fire management options… Be dynamic and adaptable to changing conditions…Be dynamic and adaptable to changing conditions… Be understandable and usable by the implementers…Be understandable and usable by the implementers…

44. Common Pitfalls Overly restrictive parameters…Overly restrictive parameters… Areas or polygons that are too small. No wiggle room…Areas or polygons that are too small. No wiggle room… No qualified personnel on unit…No qualified personnel on unit… No up-front education of internal and external partners…No up-front education of internal and external partners… Lack of focus and letting adverse conditions sneak up on you…Lack of focus and letting adverse conditions sneak up on you… Allowing long-term events to “wear you down…”Allowing long-term events to “wear you down…”

45. “THINK BIG”

46. Tips For Getting Started Inform and educate agency and partners.Inform and educate agency and partners. Start getting folks trained up and get them experience. NOW!!!Start getting folks trained up and get them experience. NOW!!! Ask for assistance from those who have been through the drill.Ask for assistance from those who have been through the drill. Involve the troops.Involve the troops. Don’t be overly aggressive and “bite- off” too much at the start.Don’t be overly aggressive and “bite- off” too much at the start. Really get to know your fuels & fire behavior. Every place is a bit unique.Really get to know your fuels & fire behavior. Every place is a bit unique. BE PATIENT – WFU is a different mind-set!BE PATIENT – WFU is a different mind-set!

47. Wildland Fire Use “The Implementation Phase!”

48. THE FOUNDATION

49. SUPPORTING DOCUMENTS

50. The WFU Guide! Deals Strictly With Wildland Fire Use! Prescribed Fire Is No Longer Included In The Guide. Uses the Relative Risk Rating Rather than a Complexity Rating!

51. The WFU Guide! Revises timeframe requirements for completion of Stages 1-3. Allows for more flexibility in who manages a particular incident based on complexity.

52. Appropriate Management Response Fire Ignition, FMP approved Stage I: Initial Fire Assessment, Periodic Fire Assessment Wildland Fire Situation Analysis Stage II: Short-Term Implementation Actions, Periodic Fire Assessment Suppression Response Stage III: Long-Term Implementation Actions, Periodic Fire Assessment Successful Unsuccessful 2006

53. WFIP StageMaximum Completion Timeframe WFIP Stage I8 hours after confirmed fire detection and Strategic Fire Size-Up WFIP Stage II48 hours after need indicated by Wildland Fire Use Management Needs Assessment WFIP Stage III7 days after need indicated by Wildland Fire Use Management Needs Assessment Periodic Fire AssessmentAs part of all stages and on assigned frequency thereafter

54. WFIP StageMinimum Planning Qualifications Minimum Implementation Qualifications WFIP Stage I (Stand-Alone Plan) Unit Duty Officer Incident Commander Type 4 (ICT4) Must have local knowledge or prior experience in implementing WFIPs and managing WFU events. WFIP Stage II (Stand Alone Plan) Fire Use Manager Type 2 (FUM2) Incident Commander Type 4 (ICT4) Must have local knowledge or prior experience in implementing WFIPs and managing WFU events. WFIP Stage III (Stand Alone Plan) Fire Use Manager Type 2 (FUM2) Incident Commander Type 4 (ICT4) Must have local knowledge or prior experience in implementing WFIPs and managing WFU events.

56. We Know The Concepts But… How Do We Implement Wildland Fire Use?

57. IGNITION OCCURS! Step 1: Initial attack resources locate the fire, complete the strategic fire size up and determine fire cause. Information is relayed to Dispatch and the Unit Duty Officer.

58. Step 2: Initial attack Incident Commander (IC) and the Unit Duty Officer make the initial recommendation if the fire is a suitable candidate for fire use, based upon Fire Management Plan criteria and local conditions such as fuels, weather, topography, etc…

59. Step 3: IC & Unit Duty Officer document determination on the Fire Size-Up Card. If Suitable, Go to Stage 1…

60. WFIP STAGE 1 Purpose: Document the fire situation. Describe initial management actions. Set the initial periodic assessment schedule as the preliminary stage of the planning process. Agency Administrator decision.

61. WFIP Stage One Content  Strategic Fire Size-Up  Fire name  Fire number  Jurisdictions)  Administrative Unit(s)  Fire Management Unit (FMU)  Geographic Area(s)  Management Code(s)  Start date/time  Discovery date/time  Current size  Location  Cause  Fuel model(s)/conditions  Current weather  Forecasted weather  Current Observed fire behavior  Forecasted fire behavior  Availability of resources  Decision Criteria Checklist  Initial Management Actions  Special hazards and concerns  Safety Concerns  Values at Risk  Operational Plan  Periodic Fire Assessment The Unit Duty Officer, Qualified Representative or Fire Use Manager Complete the Stage One WFIP In Concert with the Agency Administrator or Delegated Acting.

63. Wildland Fire Relative Risk Assessment: Step 1: Determining Values Determine Natural/Cultural Resource Concerns for the area to be affected by the fire. Rationale: Determine Social/Economic Concerns for the area to be affected by the fire. Rationale: Determine Location of Fire to Values for the area to be affected by the fire. Rationale: Connect the left and right values with a line. Read the Value Assessment where this line crosses the appropriate Location of Fire to Values line. High Low AdjacentDistant Moderate Location of Fire To Values Natural/Cultural Resource Concerns Social/Economic Concerns High Low Moderate High Moderate Low

64. Wildland Fire Relative Risk Assessment: Step 2: Determining Hazard Determine Fire Regime Condition Class for the area to be affected by the fire. Rationale: Determine Potential Fire Size for the area to be affected by the fire. Rationale: Determine Fire Behavior for the area to be affected by the fire. Rationale: Connect the left and right values with a line. Read the Hazard Assessment where this line crosses the appropriate Fire Behavior line. Large Small HighLow 3 1 Moderate Medium 2 Fire Behavior Potential Fire Size Fire Regime Condition Class High Moderate Low

65. Wildland Fire Relative Risk Assessment: Step 3: Determining Probability Determine Time of Season for the area to be affected by the fire. Rationale: Determine Seasonal Severity for the area to be affected by the fire. Rationale: Determine Barriers to Fire Spread for the area to be affected by the fire. Rationale: Connect the left and right values with a line. Read the Probability Assessment where this line crosses the appropriate Barriers to Fire Spread line. Very High Low Barriers to Fire Spread Late FewNumerous Moderate Seasonal Severity Time of Season Early Middle High Extreme High Moderate Low

66. Wildland Fire Relative Risk Assessment: Step 4: Determining Wildland Fire Relative Risk Determine Values from Step1. Rationale: Determine Hazard from Step 2. Rationale: Determine Probability from Step 3. Rationale: Connect the left and right values with a line. Read the Relative Risk where this line crosses the appropriate Probability line. High Low HighLow Moderate Probability Values Hazard High Low Moderate High Moderate Low

67. Long Short High Low Moderate Relative Risk Potential Fire Duration Fire Activity: Inactive Variable Active Moderate Stage III Stage I Stage II Planning Needs Assessment Chart

68. Long Short High Low Moderate Relative Risk Potential Fire Duration Fire Activity: Inactive Variable Active Moderate FUMA1 ICT4 FUMA2 Fire Use Manager Decision Chart

69. DECISION CRITERIA CHECKLIST (GO-NO GO) DECISION ELEMENT YES NO Is there a threat to life, property, or public and ___ ___ firefighter safety that cannot be mitigated? Are potential effects on cultural and natural ___ ___ resources outside the range of desired effects? Are relative risk indicators and/or risk assessment results unacceptable to the ___ ___ appropriate Agency Administrator? Is there other proximate fire activity that limits ___ ___ or precludes successful management of this fire? Are there other Agency Administrator issues that ___ ___ preclude wildland fire use? A “Yes” response to any of the questions indicates a suppression oriented action.

70. DELEGATIONS OF AUTHORITY ARE REQUIRED! Anytime an ICT4 or Fire Use Manager is assigned!Anytime an ICT4 or Fire Use Manager is assigned! Anytime there is a change in ICs or FUMAs!Anytime there is a change in ICs or FUMAs! Anytime an Agency Administrator is delegating authority for amending the WFIP or to perform the periodic assessments to another individual!Anytime an Agency Administrator is delegating authority for amending the WFIP or to perform the periodic assessments to another individual! Anytime an ICT4 or Fire Use Manager is assigned!Anytime an ICT4 or Fire Use Manager is assigned! Anytime there is a change in ICs or FUMAs!Anytime there is a change in ICs or FUMAs! Anytime an Agency Administrator is delegating authority for amending the WFIP or to perform the periodic assessments to another individual!Anytime an Agency Administrator is delegating authority for amending the WFIP or to perform the periodic assessments to another individual!

71. PERIODIC ASSESSMENT Done in coordination with the Agency Administrator Done at all Stages of a WFU Includes The Following:

72. The assessment frequency is how often the assessment will be reviewed.  This frequency can be daily, but each unit can determine the appropriate assessment frequency.  Units must identify standards and rationale for establishing assessment frequency, especially "step-up" and "step-down" actions.  Confirms the adequacy of the current planning stage…. The assessment frequency is how often the assessment will be reviewed.  This frequency can be daily, but each unit can determine the appropriate assessment frequency.  Units must identify standards and rationale for establishing assessment frequency, especially "step-up" and "step-down" actions.  Confirms the adequacy of the current planning stage…. PERIODIC ASSESSMENT

73. WFIP STAGE 2 Purpose above Stage 1: Specify management objectives. Document the fire situation and associated areas of concerns. Identify management actions and estimated costs. Document the Periodic Fire Assessment.

74. WFIP Stage Two Content Objectives Fire Situation -Safety considerations -External concerns -Environmental concerns -Threats -Current and predicted fire behavior -Current and predicted weather Management actions (include description of action and expected duration) Estimated costs Periodic fire assessment The Fire Use Manager Completes the Stage Two WFIP In Concert with the Agency Administrator or Delegated Acting.

75. WFIP STAGE 3 Purpose: Document a risk assessment and provide implementation actions necessary for management of a wildland fire to accomplish identified objectives over a potentially long- duration.

76. WFIP STAGE 3 Provide a definition of the acceptable management limits of multiple fires, or fire complexes represented by the Maximum Manageable Area (MMA). Consider long-term fire behavior predictions and risk assessments. Identify all known threats from the fire and address operational actions to mitigate or eliminate those threats.

77. WFIP Stage Three Content Objectives and Risk Assessment Considerations -Natural and Cultural resource objectives -Constraints MMA Definition and Maps Weather season/drought discussion and prognosis Long-Term Risk Assessment (describe techniques and outputs, include maps as appropriate) Threats To: -MMA -Public Use and Firefighter Safety -Smoke dispersion and effects -Other Resources Monitoring Actions (actions, frequency, and duration) Mitigation Actions (describe holding actions, management action points that initiate these actions and key to map if necessary) Resources needed to manage the fire Contingency Actions (describe actions necessary when mitigation actions are unsuccessful) Information Plan Estimated costs of long-term implementation actions Post-burn evaluation Signatures and Date The Fire Use Manager or Fire Use Management Team Completes the Stage Three WFIP In Concert with the Agency Administrator or Delegated Acting.

78. How Does The Management of a Wildland Fire Use Event Differ From The Other Appropriate Management Responses?

79. Science based long-range planning and technical expertise is generally at a higher level than practiced on suppression type incidents. Long Term Assessments of Fire Behavior & Weather..Long Term Assessments of Fire Behavior & Weather.. Development of MMA (Maximum Manageable Area)..Development of MMA (Maximum Manageable Area).. Management Actions, Both Long & Short Term..Management Actions, Both Long & Short Term.. Development and Implementation of The Wildland Fire Implementation Plan (Stage III)..Development and Implementation of The Wildland Fire Implementation Plan (Stage III)..

80. Simple – Low to Moderate Complexity WFU Event ICT4 or FUM2 Engine, Squad Or Fire Use Module Resource Advisor Fire Effects Monitor

81. High Complexity WFU Event (Utilizing A Fire Use Team) ICT2/FUM1 OSC2 (x 2)PSC2 LTAN FBAN GIST SOF2LSC2IOF2 Additional support staff and trainees may be requested by the FUMT depending upon the specific situation.

82. Fire Use Management Team Capabilities WFIP Stage III requires significant time commitment and expertise in long range assessment and planning needs. Manage complex operational needs. Fill role if lack of qualified or experience fire use staff on the unit or from cooperators.

83. Fire Use Management Considerations Delegation of Authority.Delegation of Authority. Commitment of local staff (fire behavior/GIS, AREP, READ, etc…).Commitment of local staff (fire behavior/GIS, AREP, READ, etc…). Turn-back standards, what do you need the team to accomplish?Turn-back standards, what do you need the team to accomplish?

84. FUMT Expectations of the Host Unit Access to local phone & computer systems and GIS data. Assistance and support from local skill base (administrative host unit). Assistance in developing a close working relationships with local groups and cooperators. Daily interaction with host unit representatives.

85. Wildland Fire Use Management – Key Points Long term resource and time commitment, how long is your fire season? Pre-event preparation and assessment products – Agency Administrator, FMO, Fuels Spec., etc. Communication with external partners and public.

86. REMEMBER!! It is your job as a Resource Advisor to provide the best information and advice you can to help the Agency Administrator make informed and prudent decisions!It is your job as a Resource Advisor to provide the best information and advice you can to help the Agency Administrator make informed and prudent decisions! They are the decision makers and they must have your assistance and support throughout the process!They are the decision makers and they must have your assistance and support throughout the process!

87. -- Finally -- Have Fun And - Greasewood WFU, White River Field Office – Day 1

88. Enjoy The View! Big Fish WFU – White River NF - 2002

89. QUESTIONS?