Charles M. Russell National Wildlife Refuge
Wildland Fire Use Project 09/29/2006
Introduction, Objectives, Actions
Recommendations, and Appendices
Introduction
The wildland fire use management strategy has proven to be a viable option for accomplishing resource
management objectives associated with the restoration of fire to wildland ecosystems. Greater
applications of fire use are becoming important for wildland fire management agencies, especially as
increasing knowledge illuminates causal factors of declining ecosystem health and the mitigating role fire
can perform. Perpetuation of natural processes such as fire can reduce and/or eliminate the causes of
declining ecosystem health.
The management of naturally ignited wildland fires through the implementation of appropriate
management responses has not proven to be an easy proposition. Among agency staff, cooperators, and
affected publics, fire use objectives, risks, and tradeoffs are not always well understood or well accepted.
In addition, operational actions are often viewed (without due consideration of all relevant facts) as
unsafe, poorly planned, under-funded, and inadequately executed.
The advent of the new wildland fire management policy resulting from the Federal Wildland Fire Policy
and Program Review (1995) has lessened funding limitations and provides the authority to implement
wildland fire use (WFU). Further guidance on the importance of developing WFU as part of the overall
resource and fire management programs is defined in the Interagency Strategy for the Implementation of
Federal Wildland Fire Management Policy.
The importance of implementing appropriate management responses for beneficial purposes to all
agencies, but especially to the FWS, cannot be understated. This strategy will continue, as the new policy
is implemented, and will occupy greater importance and proportional distribution of management
operations in the future. It is imperative that agencies work together to achieve greater consistency in
operations and standardization in policy and procedures in order to continue to accomplish resource
management objectives and meet increasing demands for fire use applications.
The Wildland Fire Use Implementation Procedures Reference Guide (2005) is intended to be used as a
guide to successfully navigate the authority and responsibility to declare and manage wildland fire use for
resources benefit (WFU). The guide follows the development of a natural ignition into a WFU event,
from initial assessment, through short term implementation actions, and up to long term management.
Objectives
The project objectives for Charles M. Russell national Wildlife Refuge (CMR), as stated in the
Delegation of Authority are summarized as:
The Team will determine feasibility of WFU areas encompassing lands in and adjacent to CMR
NWR. Priority areas may be chosen in coordination with the Agency Representative and
Interagency Fire Management Staff(s).
The Team will identify interagency values at risk within chosen areas for WFU, through an
interdisciplinary approach and develop mitigation measures for protection of these resources
during WFU incidents.
The Team will identify areas and items of concerns and propose solutions as applicable.
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Recommendations, and Appendices
Actions
Ecology
Lightning fires are a natural disturbance along the Missouri River corridor. Fire itself will define the
landscape to the extent that life and properties are not unduly threatened. WFU may burn in a variety of
ways ranging from low intensity, creeping ground fire to high intensity stand replacement fires
encompassing large acreages. A successful program will permit fires to occur at all levels of the
ecological spectrum which will result in a mixture of successional stages of vegetation. Some specific
indicators that ecological objectives are being achieved:
•
•
•
•
Perpetuation of the fire dependent ecosystems within the CMR area.
Continuation of a vegetation mosaic of vegetation that will produce fire of a more historic size
and intensity.
Maintenance of fire related plant and animal interrelationships.
Historic levels of fuels accumulations.
Wildfire
The recommended objectives for fire management within the CMR area will be to take the appropriate
management response, which results in the least-cost-plus-loss while meeting the land management goals.
The following objectives have been agreed to by interagency fire community at the national level.
1.
Firefighter and public safety is the first priority in every fire management activity.
2. The role of wildland fire as an essential ecological process and natural change will be incorporated
into the planning process.
3. Fire management plans, programs, and activities support land and resource management plans and
their implementation.
Many land management plans now direct the use of fire to restore, maintain, and improve
ecological conditions. Resource management goals indicate that the use of wildland fire is
accepted as an essential process to improve forest and rangeland health and to maintain wildland
ecosystems.
4. Sound risk management is a foundation for all fire management activities.
5. Fire management programs and activities are economically viable, based upon values to be protected,
costs, and land and resource management objectives.
6. Fire management plans and activities are based upon the best available science.
Emerging technology is fostering the incorporation of more science into wildland fire planning
and implementation actions. Support techniques now exist that enable managers to make more
informed decisions than at any other time in the history of wildland fire management.
7. Fire management plans and activities incorporate public health and environmental quality
considerations.
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Recommendations, and Appendices
8. Federal, state, tribal, and local interagency coordination and cooperation are essential.
9. Standardization of policies and procedures among Federal agencies is an ongoing objective.
Authority
The responsibility to approve WFU rests with the Refuge Manager (Interagency Standards for Fire and
Aviation Operations, Chapter 2) The Refuge Manager establishes management direction through strategic
planning that defines a program to manage wildland and prescribed fires and documents this through an
approved Comprehensive Conservation Plan (CCP) and subsequent Fire Management Plan (FMP).
The Refuge Manager is also responsible for approving Wildland Fire Implementation Plans, (WFIP) to
implement wildland fire use. The authority to approve wildland fire use may be delegated further to field
office staff or a designated acting Refuge Manager through a specified letter of delegation. The letter of
delegation will specify authority for each of the three WFIP stages and periodic assessment reviews.
Operational Procedures
The Wildland Fire Use Implementation Procedures Reference Guide (2005) is the FWS’s operational
direction for managing wildland fire use incidents. This document provides detailed guidance for
development of the, Stage I (Initial Fire Assessment), Stage II (Short Term Implementation Actions) and
the Stage III (Long Term Assessment and Implementation Actions and Periodic Fire Assessments). The
actions under each stage are completed as required and become the Wildland Fire Implementation Plan
(WFIP). All of the appropriate forms and documents needed to initiate, complete, and validate the WFIP
are included within the Implementation Procedures Reference Guide
1. Stage I. The initial assessment and the Go/No Go decision made at Stage I is the responsibility
of the Refuge Manager and/or the designated “Acting. When an ignition occurs within the
approved area, an appropriate staff person evaluates the ignition using the initial analysis criteria
and makes a recommendation to the Refuge Manager. This must be completed within 8 hours of
the ignition being confirmed. It is recommended that the Refuge identify those individuals with
appropriate qualifications to conduct the initial decision analysis. The initial decision analysis
determines options available for management of the fire. The degree to which the staff person
conducting the analysis is “appropriate” depends on the experience, qualifications and comfort
level of the Refuge Manager approving the decision.
2. Stage II. The Implementation Procedures Reference Guide requires that the Stage II Short
Term Implementation Actions assessment be completed within 48 hours of the decision to move to
Stage II. In fuel types where the primary carriers of the fire is grass and or brush it is
recommended the Stage II action plan should be completed prior to the next burning period.
Although the designation of a Maximum Manageable Area (MMA) is not required at Stage II,
because of fuel situations within CMR administered lands and the potential for rapid growth under
certain circumstances, it is strongly recommended that an MMA be developed during Stage II.
This MMA may be based upon actual growth calculations, by pre-planned methods, or by utilizing
the boundaries that provide the best feature to enable successful management where the identified
fire use event is located. In any case, the “official” declaration of the MMA is not required until
Stage III of the WFIP unless it is otherwise documented in writing by the Agency Administrator
responsible for the overall management of the fire use event. Within the varied locations
administered by the FWS, there are often opportunities to enter into cooperative agreements with
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Introduction, Objectives, Actions
Recommendations, and Appendices
private landowners, as well as local, state and other federal agencies for various facets of wildland
fire use management. It is important for the Agency Administrator and the local fire management
staff to prepare and finalize these agreements prior to or including the period that the respective
incident is being managed under the guidelines of Stage II. Waiting until Stage III to enter into
these agreements may often be too late for proper preparation and potential mitigation actions to
be considered. Copies of sample agreements are located in Appendix A.
3.
Stage III. The Stage III actions supplement the FMP by providing the full long-term
implementation actions necessary to manage the fire to accomplish the identified objectives.
During Stage III it is desirable for the team or individuals managing the fire to develop firefighter
pocket cards for that particular incident. These pocket cards are an invaluable safety tool for
incoming resources that may be assigned periodically throughout the life of the incident and who
are not familiar with local climate, fuel and fire behavior conditions.
4. Periodic Fire Assessment. The Implementation Procedures Reference Guide require that for
each WFU fire the Agency Administrator (or delegated individual) is required to periodically
affirm the capability to continue management of the fire. It is recommended that CMR that active
fires in grass and/or shrub fuel types which exhibit potential for rapid movement (spread), be
reassessed on a daily basis. At the same frequency of assessment, it is recommended that the
Agency Administrator assess the management level of the incident to make the determination to
either increase or decrease the level of management expertise assigned.
Regardless of the stage in the process that the local field unit is implementing, the standard, agencyadopted work rest guidelines apply to all wildland fire use incidents.
Decision Criteria:
This section discusses the general risks associated with a wildland fire use program and defines criteria to
be considered in the go-no go process. As this program evolves the Refuge should continually be
identifying values that need protection and designing appropriate mitigation measures to allow WFU to
proceed.
General Risks
Implementation of a wildland fire use program has inherent risks. On occasions a wildland fire use event
may exceed the MMA or be deemed outside the prescriptive criteria to meet the resource management
objectives. While these are real possibilities the chance of this occurring can be greatly reduced by proper
decision making and analysis in the initial go-no go decision and the subsequent development and
implementation of the WFIP.
Most WFU events that do not succeed are associated with abnormal weather patterns that occur in
conjunction with a large fire incident. This risk must be judged in context with the fact that suppressing
all fire can set the stage for future problems by allowing fuels to build beyond historic levels. This
buildup over time will produce larger fires of higher intensity and severity than a carefully managed
wildland fire use program.
The CMR has analyzed a 124,154 acre area to accommodate an active wildland fire use program.
Through careful analysis to determine where and when the risk of a WFU can be accepted this program
can set the stage for future expansion of WFU in the Refuge and the Service.
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Recommendations, and Appendices
The ecological benefits derived from WFU are complex and long term, while the social, economic, and
political impacts tend to be short term. Agency administrators must make a tradeoff between short term
negative risks and long term ecological and program benefits.
WFU incidents can and will disrupt activities on public lands. Short term restrictions to recreation and
hunting due to closures for safety management as well as impacts to allotments can be expected as fire is
managed on the landscape. These impacts are best analyzed on a case by case basis allowing the fire to
burn under established guidelines that meet defined objectives.
Protection Considerations
Within the designated area for WFU there are values such as cultural sites, private property, facilities and
perimeter areas that may be susceptible to having fire cross or impact them. These locations should be
identified and be priority areas for applied fuels treatments involving planned ignitions or
mechanical/chemical fuels manipulations. As these areas of concern are addressed the scope for use of
WFU can expand.
Boundary Threats
It is intended that actions be preplanned, scheduled and implemented along boundary areas prior to a
wildland fire use event. Areas of high threat should be identified and placed as priority areas for future
fuels work. Preventative measures can be used to modify the fuels characteristics within these areas to
increase the probability of appropriate management response actions being successful or to strengthen a
proposed WFU boundary.
Threatened, Endangered, and Sensitive Species
The CMR should identify and list all threatened and endangered species and evaluate the potential
impacts within the Refuge
When evaluating whether to allow fire to affect identified TES populations consider:
Basic demographics
- Distribution
- Abundance
Habitat Characteristics
- Historical fire regime, including the range of fire size and intensity
- Microsite differences
Plant adaptations to fire
- Thick bark, rhizomes, serotiny
- Mode of persistence – invader, evader, avoider, resister, endurer
The Endangered Species Act does recognize the role of natural processes in maintaining TES habitat. To
adequately predict the impacts of fire on rare species, managers must know precisely the distribution of
the rare specie within the area. The habitat condition immediately surrounding the rare population is the
critical factor.
If it appears likely that a fire will impact an identified TES population a botanist or biologist should be
added to the WFIP team. If a fire does pass through an area of concern these assigned specialists should
also accompany any post fire monitoring to document the fire effects and the post fire recovery.
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Charles M. Russell National Wildlife Refuge
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Recommendations, and Appendices
Air Quality and Smoke Management
The objective for air quality is to meet the standards set by the state to not violate federal sir quality
standards in any community as a result of the smoke produced by wildland fire use.
The impact of smoke on airsheds should be evaluated in the initial Go/No-Go decision. If the local
manager feels the potential smoke impacts are too great it may be necessary to take actions to limit smoke
production. If this is not possible the fire should not be considered for WFU.
The Montana Department of Environmental Quality, (MDEQ) administers the Smoke Management
Program for all cooperators. Consult the Smoke Management Program Plan which gives specific
guidance to managers on their responsibilities in overseeing and reporting WFU events. Application for
wildland fire use areas shall be made on an annual basis as directed in the Smoke Management Program
Plan.
Fire Starts outside of the CMR Area, Fires Burning into CMR Area
Currently all lands outside of the identified CMR and the WFU area defined in this project are under
appropriate management response, suppression option strategy. Since any fires starting on those lands
will be managed under a suppression tactic, should they burn onto the WFU zone they will remain a
wildfire and cannot be converted to a WFU. The wildland fire situation analysis, WFSA process will
determine the appropriate management response for fire burning into or out of the defined WFU area.
Fires originating or crossing onto other agency or jurisdictional areas with approved fire management
plans that allow WFU can continue to be managed as WFUs.
Transfer of Command
The Refuge Manager is responsible and will be involved in transfer of command to the assigned Fire Use
Manager or Fire Use Management Team. The hosting unit has the responsibility to provide the Delegation
of Authority and Line Officers Briefing to the incoming manager. Specifically the Delegation of
Authority will identify any constraints in tactics, issues of concern, or other special requirements. It will
designate the technical specialists, agency representatives, resource advisors, and others as needed, to
ensure successful management of the incident.
Economic Efficiency
A key component to the process in determining appropriate management response and selecting WFU is
including an economic analysis that incorporates firefighter safety, resource objectives, and social values.
Implementation of a WFU should be economically viable based on the values to be protected, costs, the
resource objectives, and the probability of success.
Recommendations
Land Management Planning and NEPA
The current status of land management and fire management planning documents completed for Fish and
Wildlife Service Lands (Charles M. Russell/UL Bend NWR’s) and Bureau of Land Management Lands
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Recommendations, and Appendices
(Lewistown/Miles City Field Offices) do not meet policy and law requirements for the implementation of
a Wildland Fire Use program.
Furthermore legal and political considerations for inclusion of State Lands (Montana Department of
Natural Resources and Conservation) and Private Lands must be addressed before the actual
implementation of a Wildland Fire Use program on these lands. At this time the Fish and Wildlife Service
is moving ahead with identifying possible locations where Wildland Fire Use may be successfully
implemented on service lands. In the future other agency or entity lands adjacent to CMR may be
included in a much larger area where Wildland Fire Use may be implemented if the proper agreements
are in place.
There are three tiers of planning necessary to develop and implement wildland fire use.
1. Comprehensive Conservation Plan (CCP). This is the overall document that sets resource
management goals and objectives for a geographically defined area.
2. Fire Management Plan (FMP). This identifies the appropriate strategies to achieve resource
objectives.
a. Fire Planning Unit (FPU) is the basic planning component of the FMP.
b. A Fire Management Unit (FMU) is a sub-geographic area of an FPU. This was
previously referred to as the Fire Management Zone (FMZ). FMUs may have
multiple objectives/constraints and share like objectives/constraints with other FMUs.
c. An FPU usually includes multiple FMUs, or may only include a single FMU,
dependent on management objectives and/or specific localized situations.
d. FMP’s must be consistent with firefighter/public safety, values to be protected, land
and resource management plans and must address public health issues.
3. Wildland Fire Implementation Plan (WFIP). This is the site-specific implementation plan for a
wildland fire use incident and consists of three distinct stages. It includes, at a minimum the
Stage I and Stage II phases. A long-lasting or complex incident will generally require the
completion and implementation of Stage III. The “triggers” for initiating the final stage of the
WFIP (Stage III) is found in the “Wildland and Prescribed Fire Management Policy,
Implementation Procedures Reference Guide”.
Minimum planning criteria that must be met to establish wildland fire use are as follows:
1. Wildland fire use is supported in the unit’s land use planning document and in the
corresponding fire management plan.
2. Wildland fire use areas are pre-defined geographic areas in the FMP.
3. Resource management objectives are pre-stated in the CCP and FMP.
4. Any prescriptive fire behavior criteria must be consistent with the resource management
objectives. The unit(s) implementing wildland fire use should consider in their planning,
such items as long-term drought, generalized seasonal fire dynamics and other localized
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factors which will provide the agency administrator with accurate and realistic data to make
educated and sensible decisions regarding fire use management.
5. Additional pre-planning documentation may include pre-identified Maximum Manageable
Area (MMA) boundaries, Rare Event Risk Assessment (RERAP) assessments and historic
weather analysis from Fire Family Plus. This and other documentation is largely dependent
on local expertise, need and fuel types.
Training and Qualifications
To fully implement a WFU program at CMR it will be critical to develop and maintain qualified
individual at the unit and zone levels. Currently there are no qualified FUM1 or FUM2 individuals within
the zone. To effective oversee the program CMR must have readily available, during times when fire
activity is possible, four (4) FUM2, as a minimum.
The qualifications of the Fire Use Manager are as follows: Fire Use Manger Type 2 (RXB2 or ICT3), Fire
Use Manager 1 (RXB1 or ICT2). In either case, in order to be fully qualified, the person must have
completed Advanced Fire Use Applications (S-580) or equivalent, and successfully completed their
assigned task books for FUM1 or FUM2 or meet the established requirements in the Interagency
Qualifications Computer System.
Implementation Roles and Responsibilities
A Fire Use Manager (FUMA) will be assigned to every wildland fire use incident. The FUMA can manage
more than one incident at a time, when the separate incidents each have assigned ICs (moderate or high
complexity) or the incidents are low complexity or close to a season ending event.
Typically, a Fire Use Manager Type 2 (FUM2) will manage those incidents that are of low to moderate
complexity or in some cases, higher complexity incidents where local personnel have the sufficient depth
and skill to manage them with little impact to local and regional resources. In some situations, especially
where fire use management skills are limited, or where the incident is highly complex and has the potential
for long term existence, a Fire Use Manager Type 1 (FUM1) may be required to manage these types of
events. Upon occasion, when this type of situation is encountered, a formal Fire Use Management Team
(FUMT), may be warranted, in addition to the FUM1. The determination of the FUM2 or FUM1 depends
upon the results developed in the completion of the Wildland Fire Relative Risk Rating and the Fire Use
Manager Needs Assessment. Subsequently, the Agency Administrator or his/her delegated acting may opt
to complete a Fire Use Management Team Needs Assessment to assist in the determination of the need for
a formal Fire Use Management Team.
The Fire Use Manager (I or 2) is responsible for the development of the WFIP, the oversight of the
organization and expertise necessary to successfully manage wildland fires to meet resource objectives.
The Fire Use Manager will be given a formal “delegation of authority” signed by the Agency
Administrator to manage WFU incident
Monitoring and Evaluation
The main purpose of fire monitoring is to observe and gather fire information to utilize in the daily
evaluation of wildland fire use events. Information is assembled both on and off site to help managers
assess the fire and smoke situation. This evaluation provides managers the required information to
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Recommendations, and Appendices
oversee existing WFUs and analyze new ignitions. All monitoring action should be documented and
included in the final fire package.
Two levels of monitoring are performed to track WFUs. The first type monitors the annual individual,
active fire use event. Contained within the Stage III process, as described in the WFU Implementation
Guide, is a list of the required variables to monitor which must be documented on individual WFUs. The
next level of monitoring, in contrast, addresses the accomplishments of the overall WFU program. This
monitoring effort is designed to measure to what degree fires are allowed to resume their natural role in
the ecosystem.
Program level monitoring occurs on two scales. In the short term the WFU program should be evaluating
why fires in a WFU zone were suppressed. Short term monitoring identifies missed opportunities or
missed calls which could provide feed-back to the risk assessment process. Long term program
monitoring determines the extent WFU is meeting ecosystem management objectives. This process must
be developed over the area and should examine whether WFUs are burning within the range of natural
variability, for the fuel type, in terms of size, frequency, and intensity.
Annual Monitoring
The goal of annual monitoring is to identify reasons why opportunities to manage natural fires within the
refuge area were missed and develop strategies to reduce the number of missed opportunities. W also
must analyze WFUs that are unsuccessful and determine how to avoid future conversions. Understanding
why a fire presents unacceptable risks will help to refine the risk assessment process.
Evaluation Criteria
1.
2.
3.
4.
5.
6.
7.
All lightning caused fires are evaluated as candidate WFUs.
WFUs are prevented from crossing out of the defined area.
No loss of life or property results from WFU implementation.
Resources are committed commensurate with identified risks.
Decisions are based on current and predicted fire potential.
National and state standards for air quality are met.
Agency Administrator discretion and decisions are clearly documented in Stage I, II, III and
during the periodic validation.
Evaluation Procedures
1. Identify what risk factors contributed to the decision to manage a fire under a suppression
strategy, and identify pro-active mitigation measures that might have lead to WFU designation.
2. For each designated WFU, document events that required some type of management action.
Identify pro-active mitigation measures that might have prevented the need to take similar actions
in the future.
3. After each fire season the fire and resources staffs will consolidate the information from the two
steps listed and present recommendation to the Refuge Management Team.
The depth of the analysis should be commensurate with the level of fire activity for the year. For example,
if a hundred fires occur within the zone, in-depth analysis on each fire would be impractical. However
certain fires will stand out that illustrate significant barriers or issues for WFU determination, (i.e.
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proximity to boundaries, lack of resources, threat to a value that requires some pre-work in fuels
reduction, or missing agreements with cooperators). During wet years analysis of choosing suppression
should be even greater as those years should provide the greatest opportunities to take risks. A zone wide
analysis/ discussion addressing items that limited the WFU program should focus on trends across the
zone. Identified solutions or alternatives should be documented and refinements incorporated into
operational plans.
Monitoring Individual Fires
Individual fires managed for resource benefit monitored using the following list as a starting point for
data gathering.
•
•
•
•
•
Conduct post burn monitoring field trips on all burn that impact more than 50 acres of riparian
habitat and on all fires over 300 acres.
Evaluate all fire of high intensity for soil hydrophobicity.
Monitor vegetation responses, especially in sagebrush and Ponderosa pine zones.
Evaluate changes in woodland habitat type and seral stage.
Any fire identified by the resource specialists to be significant will be monitored and reviewed to
see if objectives were met., to what degree, and to make necessary adjustment to this guidance to
improve the program.
As part of the post fire evaluation each fire greater than 300 acres will have a fire severity map prepared.
This map will be used to develop a data base of fire size and severity to carry forward for evaluating fire
effects on different vegetation types. Some specific items to evaluate include:
1. Summary of events, display of monitoring observations.
The following observation and items should be gathered and recorded, if possible.
9 Fire area, list acres.
9 Daily fire projection map with estimated rates of spread.
9 Daily fire intensity observations.
9 Crown fire areas, list acres and % of total area.
9 Lethal underburn, list acres and % of total area.
9 Non-lethal underburn, list acres and % of total area.
9 Unburned area within fire perimeter, list acres and % of total area.
9 Estimated fuel consumption.
9 Estimated smoke production.
9 Summary of weather patterns
2. Validate fire behavior projections.
3. Holding force required to manage fire to meet objectives.
4. Cost estimates.
5. Smoke impact estimates.
6. Closures, (if necessary) and impacts.
7. Impacts (threats) to public and private property.
8. Evaluation of key decision made in managing the fire.
9. Summary of post fire monitoring.
A fire severity map overlaid onto a daily progression map with weather data for the event life cycle, along
with an executive summary, would be the minimum package required for long-term documentation and
evaluation.. The summary statement combines elements of the WFU, Stage III, and defines the rationale
for the established MMA based on mitigation of identified risks.
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Appendix A:
Examples For:
Fire Management Memorandum of Understanding with County Agency
Fire Management Memorandum of Understanding with Private Landowners
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Fire Management Memorandum of Understanding
General
This Memorandum of Understanding entered into by and between the ______CMR Refuge Manager and
(property owner, address) and _________ County. This agreement provides for the management of
wildland fire as described in the (1) _____CMR Fire Management Plan on the Charles M. National
Wildlife Refuge (CMR),(2) _______ County Fire Management Plan and (3) privately owned lands
described below.
Authority
Federal Land Planning and Management Act (FLPMA) of 1976 (43USC 1737-1738)
House Bill 00-1283(CRS 23-30-204, CRS 23-30-301, CRS 23-30-304, CRS 23-30-305, CRS 30-10-513,
CRS 30-10-513.5 (1) (a), Part 1 of article 11 of title 30; 30-11-124.
Purpose
The National Fish and Wildlife Service has designated lands in the ______CMR Fire Management Plan
(FMP) for a wide range of fire management response for naturally ignited wildland fires and the use of
prescribed fire. These can vary from aggressive and full suppression to management of the fire for
resource benefit. Protection of life and property is the first priority for a fire for resource benefit.
Management of these fires, under a defined prescription, takes advantage of natural fuel barriers and
topography. The objectives for management are clearly based on resource objectives. These fire
management responses collectively will be known as the “appropriate management response” or AMR,
and
___________County has the authority to cooperate with other governing bodies and with the state
forester in the management of fires and
(Property owner’s name) owns several tracts of land totaling approximately (X) acres described as
follows:
(Legal Description)
Which are either surrounded by or adjacent to National Fish and Wildlife Service lands included in
________CMR Fire Management Plan (FMP).
It is mutually agreed as follows:
1. The CMR will continue fire management practices as described in the FMP for (property
owner’s name). The FMP requires appropriate management response (AMR) from
naturally ignited (lightning) wildland fires which may occur in the area and which may,
as a consequence of such decision as not to suppress, spread to said adjacent private
lands.
2. _________ County supports such management actions on private land based on the
framework provided in the County Fire Management Plan.
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3. (Property owner’s name) has reviewed and agrees with the ________ CMR Fire
Management and recognizes the environmental benefits from a wildland fire to said
property. They will not hold the United States responsible for any damage or injury to
said property that may result from the implementation of the Fire Management Plan. This
would include fire rehabilitation on private property.
4. The agrees not to hold (Property owners name) harmless for damages, which may result
from a naturally ignited (lightning) fire originating on this private land and spreading
onto adjacent _________ National Fish and Wildlife Service lands.
5. When such an ignition occurs, notification to respective parties will be made as soon as
possible.
Duration/Renewal
This agreement will be in effect after the date of the last signature and will remain in effect for five years
(or 5 years from current date here) or until canceled on sixty days written notice by either party. The
landowner will immediately contact the CMR, if ownership of said property changes. On an annual basis,
CMR will review the Fire Management Plan and make contact with private landholder. At this time if
there are any changes in the Planning Objectives for the area adjacent to this private land or new concerns
have arisen from the property owner, these items will be mutually discussed.
Special Provision
Officials not to Benefit
No member of or delegate to Congress, or resident commissioner, shall be admitted to any share or part of
this agreement, or to any benefit that may arise therefrom; but this provision shall not be construed to
extend to this agreement if made with a corporation for its general benefit.
The parties hereto have executed this Memorandum of Understanding as of the last date written below.
______________________
Date
_____________________________
Refuge Manager
______________________
Date
_____________________________
(Property owner’s name)
______________________
Date
_____________________________
(__________County Commissioner)
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Recommendations, and Appendices
Fire Management Memorandum of Understanding
General
This Memorandum of Understanding entered into by and between the ______Refuge Manager and
(property owner, address). This agreement provides for the management of wildland fire as described in
the _____CMR Fire Management Plan on the National Fish and Wildlife Service and privately owned
lands described below.
Authority
Federal Land Planning and Management Act (FLPMA) of 1976 (43USC 1737-1738)
Purpose
The National Fish and Wildlife Service has designated lands in the ______CMR Fire Management Plan
(FMP) for a wide range of fire management response for naturally ignited wildland fires. These can vary
from aggressive and full suppression to management of the fire for resource benefit. Protection of life and
property is the first priority for a fire for resource benefit. Management of these fires, under a defined
prescription, takes advantage of natural fuel barriers and topography. The objectives for management are
clearly based on resource objectives. These fire management responses collectively will be known as the
“appropriate management response” or AMR, and
(Property owner’s name) owns several tracts of land totaling approximately (X) acres described as
follows:
(Legal Description)
which are either surrounded by or adjacent to National Fish and Wildlife Service lands included in
________CMR Fire Management Plan (FMP).
It is mutually agreed as follows:
6. The National Fish and Wildlife Service will continue fire management practices as
described in the FMP for (property owner’s name). The FMP requires appropriate
management response (AMR) from naturally ignited (lightning) wildland fires which
may occur in the area and which may, as a consequence of such decision as not to
suppress, spread to said adjacent private lands.
7. (Property owner’s name) has reviewed and agrees with the ________Fire Management
Plan and recognizes the environmental benefits from a wildland fire to said property.
They will not hold the United States responsible for any damage or injury to said
property that may result from the implementation of the Fire Management Plan. This
would include fire rehabilitation on private property.
8. The National Fish and Wildlife Service agrees not to hold (Property owners name)
harmless for damages, which may result from a naturally ignited (lightning) fire
originating on this private land and spreading onto adjacent _________ National Fish and
Wildlife Service lands.
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Charles M. Russell National Wildlife Refuge
Wildland Fire Use Project 09/29/2006
Introduction, Objectives, Actions
Recommendations, and Appendices
9. When such an ignition occurs, notification to respective party will be made as soon as
possible.
Duration/Renewal
This agreement will be in effect after the date of the last signature and will remain in effect for five years
(or 5 years from current date here) or until canceled on sixty days written notice by either party. The
landowner will immediately contact the CMR, if ownership of said property changes. On an annual basis,
CMR will review the Fire Management Plan and make contact with private landholder. At this time if
there are any changes in the Planning Objectives for the area adjacent to this private land or new concerns
have arisen from the property owner, these items will be mutually discussed.
Special Provision
Officials not to Benefit
No member of or delegate to Congress, or resident commissioner, shall be admitted to any share or part of
this agreement, or to any benefit that may arise therefrom; but this provision shall not be construed to
extend to this agreement if made with a corporation for its general benefit.
The parties hereto have executed this Memorandum of Understanding as of the last date written below.
______________________
Date
_____________________________
Refuge Manager
______________________
Date
_____________________________
(Property owners name)
15
Charles M. Russell National Wildlife Refuge
Wildland Fire Use Project 09/29/2006
Introduction, Objectives, Actions
Recommendations, and Appendices
Appendix B:
Maximum Manageable Area
Definitions
Staffing Level Table
Map
16
Charles M. Russell National Wildlife Refuge
Wildland Fire Use Project 09/29/2006
Introduction, Objectives, Actions
Recommendations, and Appendices
Maximum Manageable Area (MMA)
All wildland fires being managed under appropriate management response strategies identified in a WFIP
Stage III will have a defined MMA. The MMA delineates the geographic limits of the fire area as
defined by the capability of management actions to meet resource objectives and mitigate risk for a given
Wildland fire managed for resource benefits. It represents an important tool in the planning process and
serves as a planning reference and not as a rigid prescription element. It is based primarily on natural
defensibility and facilitates identification of threats to a management boundary and threats to values
within and adjacent to that boundary. It provides a planning basis for risk assessment analyses. It
provides for closely directed fire management application in a specific area defined by resource
objectives, fire and weather prescription elements, social concerns, political considerations, and
management capability. Those implementing a Wildland Fire Use program must be knowledgeable of
the attributes of MMA’s as listed within the current Wildland Fire Use Implementation Procedures
Reference Guide.
The recommended Maximum Manageable Area (MMA) incorporates lands administered by Charles M.
Russell and U.L. Bend National Wildlife Refuges within the Mountain Prairie Region of the U.S. Fish
and Wildlife Service. This MMA incorporates both wilderness and non-wilderness lands. The MMA
delineates the geographic limits of the fire area as defined by the capability of management actions to
meet resource objectives and mitigate risk for a given wildland fire managed for resource benefits. A
map of the MMA is provided in the appendix.
The area within the recommended MMA encompasses 124,154 acres. Wildland Fire Use fire would be
actively managed in 90,222 acres of the MMA with the remainder being used as a contingency zone. Fire
within this contingency zone would require an aggressive appropriate management response. State
Lands within this recommended MMA encompass 5,428 acres. Private inholdings encompass 874 acres.
Managed fire approaching or within these lands would require an aggressive appropriate management
response as well.
Segments are portions of the MMA that are delineated in response to their location to potential fires,
values at risk, naturally defensible boundaries and special resource concerns and objectives. The
recommended MMA consists of four segments (see Charles M. Russell Fire Use Planning Map).
Segment 1 : This segment starts at the junction of 302 Road and the Missouri River. From this location
it extends northwesterly to the 201 Road, then along the 201 Road to the junction with 206 Road, then
northerly to the junction with the 847 Road. From this junction easterly along the 847 Road to the Refuge
boundary. This segment will be the western boundary of the recommended MMA. This segment uses
good dirt roads as hard boundaries for the MMA. Fuels and topography along the segment line may be
characterized in general by describing brush and grass in coulees and south facing slope areas with some
areas in breaks of ponderosa pine and juniper coverage that might contribute to some small pockets of
aerial fire spread. There are excellent opportunities for holding fire within the boundaries of this segment.
A variety of Management Action Points (M.A.P.’s ) may be developed east of the Segment line that
would call for more aggressive appropriate management responses the closer to the Segment line any fire
came.
Segment 2: This segment starts at the junction of the 847 Road and the Refuge boundary then extends
eastward along the Refuge boundary approximately 39 miles to the junction of the boundary and the 322
Road. This segment will be the northern boundary of the recommended MMA. Although this Segment
line follows a political boundary and not necessarily the best naturally defensible barrier, there are ample
opportunities to use those existing natural barriers to halt or restrict fire spread along or adjacent to the
Segment boundary. The 201and 321 Roads, immediately south of Segment 2, provide excellent
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Charles M. Russell National Wildlife Refuge
Wildland Fire Use Project 09/29/2006
Introduction, Objectives, Actions
Recommendations, and Appendices
defensible lines and will serve as a primary M.A.P. where aggressive appropriate management responses
will be taken to keep any fire south of the Segment 2 boundary. Fuels and topography may be generally
characterized along this Segment boundary by describing a fuel bed where fire would generally be carried
by grass with some pockets of shrubs that would increase fire intensity. There are many areas where
fuels are very light or non-existent with alkali playas, and extensive prairie dog towns. These areas
would serve as natural fuel breaks.
Segment 3: This segment starts at the junction of the Refuge Boundary and the 322 Road and extends
southward along the 322 and 321 Roads to the Lake near Fourchette Bay. Dirt roads provide good
opportunities for management actions along this segment that would contain fire to the recommended
MMA. M.A.P.’s may be developed west of the Segment line that will assist in limiting fire spread
outside the recommended MMA. Fuels in this area may be generally characterized by describing a fuel
bed where grass is the primary carrier of fire spread, but where pockets of brush fuels may contribute to
fire intensity. Also, some north facing breaks would have pockets of forest fuels which would contribute
to fire spread through spotting in some conditions.
Segment 4: This segment starts at the mouth of Fourchette Bay and extends westward following the
actual river channel back to the beginning of Segment 1 near the junction of the 302 Road and the Lake
near Garrit Schoolhouse Coulee. Fire spread beyond this naturally defensible segment boundary is
considered to be extremely negligible. The only time fire may spread across this boundary is during a
period of extreme and prolonged drought where lake water levels are very low and adjacent fuels along
the river’s edge have been drought stressed and/or dry for a long period of time. Extreme weather events
may push fire across this Segment boundary in very isolated circumstances.
Possible Future MMA
Opportunities may exist for additional Wildland Fire Use or Appropriate Management Response (AMR)
management of wildland fires on lands adjacent to the recommended MMA. This will be highly
dependant on positive public feedback to these types of programs and the will of the appropriate Land
Management Agency or entity to implement this type of program on lands within their area of
responsibility. Other areas of the country with varied land ownership have successfully developed and
implemented Wildland Fire Use programs to meet the various resource objectives required by all parties
involved in these efforts.
The Team looked at one possible enhanced MMA. This MMA would include Bureau of Land
Management, Montana State Lands, Non-governmental Organizations (American Prairie Foundation), as
well as some private lands. A map of this possible MMA may be viewed in Appendix B. The area
within this possible MMA is approximately 170,103 acres. It goes without saying that until appropriate
agreements between agencies and entities are complete, and all land management planning documents
and NEPA compliance are complete that this possible MMA is strictly theoretical at this time.
Values At Risk
Values are those ecologic, social, and economic effects that could be lost or damaged because of a fire.
Ecologic values consist of vegetation, wildlife species and their habitat, air and water quality, soil
productivity, and other ecologic functions. Social effects can include life, cultural and historical
resources, natural resources, artifacts, and sacred sites. Economic values make up things like property
and infrastructure, economically valuable natural and cultural resources, recreation, and tourism
opportunities. This assessment allows opportunity for the local agency administrator to identify particular
local concerns. These concerns may be identified in the fire management plan or other planning
documents. The Table of Values at Risk is attached below.
18
Charles M. Russell National Wildlife Refuge
Wildland Fire Use Project 09/29/2006
Introduction, Objectives, Actions
Recommendations, and Appendices
Type of
Value
Sub-Type
Value
Number
S
S
S
S
S
S
O
O
O
U
U
U
1
2
3
4
5
6
Robinson Cow Camp - O
Matovich Residence-O
Ferret Camp - O
Jim Wells - U
Leg Well - U
Long X Ranch - U
S
O
S
S
S
S
S
S
S
S
S
S
S
S
S
S
S
S
S
S
S
S
S
S
S
S
O
O
O
U
O
O
O
O
O
O
U
O
O
O
U
Sign
Sign
Sign
Sign
Sign
Sign
Sign
Bridge
Bridge
7
8
9
10
11
12
13
14
15
16
17
18
19
20
21
22
23
24
25
26
27
28
29
30
31
American Prairie
Foundation Ranch - O
Carlson Ranch - O
Hartland Ranch - O
Rabb Ranch - O
Loomis Ranch - U
Jones Ranch - O
Reynolds Ranch - O
Weeder Inholding - O
Gallup Huning Camp - O
Collins Ranch - O
Crooked Creek Ranch - O
Alex Camp - U
Hedman Cow Camp - O
Lewis Camp - O
McArthur Camp - O
Turkey Joe Camp - U
BFF Sign
212 Entrance Sign
201 Entrance Sign
322 Entrance Sign
104 Entrance Sign
343 Entrance Sign
103 Entrance Sign
Carrol Coulee
Nichols Coulee
Value Actual Name
MMA Segment
Location
19
M.A.P. Associated
With
Mitigation
Needed
Resources
Needed
Comments
Charles M. Russell National Wildlife Refuge
Wildland Fire Use Project 09/29/2006
Introduction, Objectives, Actions
Recommendations, and Appendices
S
S
Bridge
Bridge
32
33
Drag
Alkali
R
R
R
Developed
Developed
Developed
1
2
3
Fourchette Creek
Devils Creek
Crooked Creek
I
I
RAWS
RAWS
I
I
I
Utility
Utility
Utility
1
2
3
4
5
Manning RAWS
Chain Buttes RAWS
Musselshell Phone Box
Hawley Phone Box
Sagebrush Phone Box
H
Building
1
BLM Historical Bldg
W
wildlife
1
Sage grouse/antelope
winter and nesting range
W
old growth
2
Lost Creek
W
W
W
W
old growth
riparian
raptor nest
raptor nest
3
4
5
6
Narrows
APF Riparian
Brandon Butte Zone
Cottonwood Creek Zone
G
O
O
Private
Inholding
O
allow surface fires but no stand
replacement
1
Private
Inholding
Private
Inholding
Private
Inholding
O
allow surface fires but no stand
replacement
1
Robinson Cow Camp
2
Manning Corral
3
Robinson 2
4
No
mitigation
needed
APF
20
No mitigation needed
Charles M. Russell National Wildlife Refuge
Wildland Fire Use Project 09/29/2006
O
O
O
O
O
O
O
O
O
O
O
O
O
O
O
O
O
O
O
O
Private
Inholding
Private
Inholding
Private
Inholding
Dept. State
Lands
Wilderness
Proposed
Wild.
Proposed
Wild.
Proposed
Wild.
Proposed
Wild.
Proposed
Wild.
Proposed
Wild.
Proposed
Wild.
Proposed
Wild.
Introduction, Objectives, Actions
Recommendations, and Appendices
5
Solberg
6
Loomis
7
8
9
10
11
12
13
14
Phipps
Jones
Weeder
Reynolds
Weeder 2
Gallup
Collins
Lewis
15
16
Wheatgrass
UL Bend Wilderness
17
Brandon PWA
18
Beauchamp PWA
19
Garden Coulee PWA
20
Soda Creek PWA
21
Alkali PWA
22
Dry Coulee PWA
23
Ironstake PWA
24
Big Coulee PWA
Proposed wilderness
21
Charles M. Russell National Wildlife Refuge
Wildland Fire Use Project 09/29/2006
Introduction, Objectives, Actions
Recommendations, and Appendices
Management Action Points
Management Action Points (M.A.P.’s) are tactical decision points, either geographical points on the
ground both inside and outside the MMA or specific points in time where an escalation or alteration of
management actions is warranted in response to fire activity, proximity to identified threats, time of
season, weather changes, or management decisions. The points are placed on maps that accompany the
Wildland Fire Implementation Plan (WFIP). They can be started in Stage II and added to in Stage III for
long range needs. These points must be tied to identified threats in the plan. Each management action
point will have one or more corresponding mitigation actions described which will need implementation
when the fire reaches it or after a specified time period. This documentation stays with the fire through its
management and is amended periodically as new management action points and mitigation actions are
developed. As management personnel change over the life of a WFU fire, this documentation provides
continuity in direction needed when a fire approaches the management action point.
For the purposes of this planning effort the Team has included several examples of M.A.P.’s that have
been developed for selected values at risk within the recommended MMA. The format for each M.A.P. is
recommended for inclusion into a Wildland Fire Implementation Plan (WFIP) regardless of Stage. Again,
this documentation provides the continuity necessary to manage a long term event and protect values at
risk.
22
Charles M. Russell National Wildlife Refuge
Wildland Fire Use Project 09/29/2006
MAP#
MAP 1
Management
Action Point
One mile
radius around
S-23 (BFF
Sign)
Introduction, Objectives, Actions
Recommendations, and Appendices
Management Action
Fire approaches within 1/2 mile of, or reaches the M.A.P.
line around the BFF Sign in any direction – clear brush
out around sign for 10-25 feet and/or cover the sign with
cabin wrap or old fire shelter.
Updates & Actions:
23
Resources
Recommended
1-2 Firefighters
1 old fire shelter
or partial roll of
protective cabin
wrap material
Date
Done
Charles M. Russell National Wildlife Refuge
Wildland Fire Use Project 09/29/2006
MAP#
MAP 2
Management
Action Point
One mile radius
around I-5
(Sagebrush
Phone Box)
Introduction, Objectives, Actions
Recommendations, and Appendices
Management Action
Fire approaches within ¼ mile of, or reaches the M.A.P.
line around the Sagebrush Phone Box in any direction –
clear brush out around box for 10-25 feet and/or cover
the box with cabin wrap or old fire shelter.
Updates & Action:
24
Resources
Recommendation
1-2 Firefighters
1 old fire shelter
or partial roll of
protective cabin
wrap material
Date
Done
Charles M. Russell National Wildlife Refuge
Wildland Fire Use Project 09/29/2006
MAP#
MAP 3
Management
Action Point
The 201 Road
from the
Sement 1 MMA
boundary
eastwards to the
Refuge
boundary at the
junction with
the 321/474
Road junction
Introduction, Objectives, Actions
Recommendations, and Appendices
Management Action
Resources
Recommendation
If fire approaches within ½ mile of this M.A.P. a variety
of actions may be taken commensurate with the time of
year and current and expected fire spread direction and
fire behavior in next 36-72 hours.
If fire moves northward during the primary part of the
fire season exhibiting rates of spread in excess of 60
chains per hour then mobilize resources to burn out from
the 201 Road as needed from good anchor points.
If fire reaches M.A.P. 3 during times of the year when
additional fire spread is not expected, a monitoring
action may be all that is required.
Updates & Action:
25
5 Engines
1 Water Tender
1 20 person crew
1 DIVS
1 TFLD
1 SEAT
Date
Done
Charles M. Russell National Wildlife Refuge
Wildland Fire Use Project 09/29/2006
MAP#
MAP 4
Management
Action Point
½ mile radius
around S-5
(Legg Well)
Introduction, Objectives, Actions
Recommendations, and Appendices
Management Action
Prep well structures to protect from fire by removing
fuels around the structure to prevent burning and
possibly wrapping the structures that will be damaged by
fire using cabin wrap or old fire shelters.
Updates & Action:
26
Resources
Recommendation
2 Firefighters
Partial roll of
cabin wrap
Date
Done
Charles M. Russell National Wildlife Refuge
Wildland Fire Use Project 09/29/2006
MAP#
MAP 5
Management
Action Point
319 Road from
the junction of
the 201 Road
eastward to the
junction with
the 446 Road
then eastward to
the lake
Introduction, Objectives, Actions
Recommendations, and Appendices
Management Action
Resources
Recommendation
To protect the wildlife winter range area from extreme
fire behavior (bad fire effects).
If fire approaches within ½ mile of this M.A.P. a variety
of actions may be taken commensurate with the time of
year and current and expected fire spread direction and
fire behavior in next 36-72 hours.
If fire moves northward during the primary part of the
fire season exhibiting rates of spread in excess of 60
chains per hour then mobilize resources to burn out from
the roads that comprise the M.A.P. as needed from good
anchor points.
If fire reaches M.A.P. 5 during times of the year when
additional fire spread is not expected, a monitoring
action may be all that is required.
Updates & Action:
27
4 Engines
1 Water Tender
1 20 person crew
1 DIVS
1 TFLD
1 SEAT
Date
Done
Charles M. Russell National Wildlife Refuge
Wildland Fire Use Project 09/29/2006
MAP#
MAP 6
Management
Action Point
On west side
from Refuge
boundary and
474 Road east
to the 321 Road;
east along the
321 Road to the
322 Road then
north along the
322 Road to the
Refuge
boundary
(approximately
10 miles)
Introduction, Objectives, Actions
Recommendations, and Appendices
Management Action
Resources
Recommendation
If fire approaches within ½ mile of this M.A.P. a variety
of actions may be taken commensurate with the time of
year and current and expected fire spread direction and
fire behavior in next 36-72 hours.
If fire moves northward during the primary part of the
fire season exhibiting rates of spread in excess of 60
chains per hour then mobilize resources to burn out from
the roads that comprise the M.A.P. as needed from good
anchor points.
If fire reaches M.A.P. 5 during times of the year when
additional fire spread is not expected, a monitoring
action may be all that is required.
Updates & Action:
28
1-2 Type 4 or 6
Engines
Or
1 20-person
handcrew with
Engine support
Date
Done
Charles M. Russell National Wildlife Refuge
Wildland Fire Use Project 09/29/2006
Introduction, Objectives, Actions
Recommendations, and Appendices
Contingency Actions
Contingency actions are actions necessary when mitigation actions are unsuccessful (impacts to
values could occur). They are identified for implementation to control the spread of fire into
unwanted areas or to prevent it from adversely impacting a sensitive value (reduce hazard and/or
probability). For example, if the fire crosses the MMA at any point along the perimeter and
mitigation was unsuccessful, onsite firefighting resources will be utilized to achieve control. If
control cannot be accomplished, the fire will be converted to a wildfire. All fires that are
converted to wildfires will have a Wildland Fire Situation Analysis (WFSA) prepared to select
the proper strategic alternative and identify necessary resources. Contingency actions may also
include preplanned coordinated actions with air regulatory agencies in the event that forecast or
smoke management plans are not accurate.
29
Charles M. Russell National Wildlife Refuge
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Introduction, Objectives, Actions
Recommendations, and Appendices
Fire Use Team or Staffing Level Determination
Factor A – Safety
There is evident threat to the safety of the public from fire related activities.
Yes No
Multiple restrictions and/or closures are in effect or being considered.
Multiple or mixed types of aircraft are being utilized or anticipated.
Factor B – Fire Behavior
Potential exist for significant fire growth for multiple burn
periods.
Weather forecasts indicate no significant relief for worsening conditions for
5+ days.
Energy release component indices are at or above 80% level for 5+ days and
rising.
Factor C – Resources at Risk (within 48-72 hours)
Multiple structures or infrastructure are threatened.
Unique cultural, natural, habitats or threatened and endangered species may
be adversely affected
Long term air quality issues are currently occurring or have the potential to
occur.
Factor D – Resource Availability/Logistic Support
The personnel or equipment required exceeds the capability of current local
support structure
Command and general staff structure of the incident has or soon will exceed
capabilities.
Local administrative unit has minimal or no experience with long term
wildland fire use management
Factor E – External Influences
Controversial wildland fire use management policy may adversely effect
strategies or tactics
Sensitive political interests or pre-existing issues or controversial
relationships are present.
Public and/or media interest is beyond the capability of the local unit to
adequately address.
Guidelines for using this table:
Yes No
Yes No
Yes No
Yes No
This table should be reviewed and completed each time a periodic assessment is done. If positive
responses exceed negative responses within any primary factor (A-E), the entire factor should be
considered a positive response. If the overall primary factor response is positive for 3 or more
factors consider the implementation of higher staffing levels or request a fire use management
team.
Signature: ______________________ Title:__________________ Date:___________ Time:__________
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Charles M. Russell National Wildlife Refuge
Wildland Fire Use Project 09/29/2006
Introduction, Objectives, Actions
Recommendations, and Appendices
Appendix C:
Information Technology Considerations:
A Wildland Fire Use Perspective
The following section outlines a list of considerations that should be reflected-on
previous to requesting a Fire Use Management Team (FUMT).
One of the main goals of a Fire Use Management Team is the containment of costs. As
such, FUMT’s are usually composed of a 7-10 member group. In order to support the
FUMT a Computer Specialist (CTSP) usually accompanies the team. Due to the size of
the team, any Information Technology requirements must be easily transported. In 2001
six FUMT IT kits were developed for the explicit in Fire Use incidents. These kits
provide both the mobility and flexibility that the FUMT requires when being mobilized to
an incident.
The kits contain an array of technology which allows the FUMT to develop deliverables
for the incident and allows for the use of software in order to track the costs and
resources. However, in order for the kits to be utilized there are certain
considerations/requirements that can be accommodated by the host agency before the
team arrives in order to facilitate the use of these technologies.
The following list outlines some of the basic requirements that must be met in order for a
FUMT to affectively use the technology kits.
•
•
•
Physical Space: Space large enough to house 10 members of the FUMT.
Typically a single room is preferred, but multiple rooms can be accommodated by
the CTSP. The room should be large enough to house the 10 member, printers and
computers.
Internet Access: Internet access is critical for the FUMT. Information is a
necessity when the FUMT’s are on incidents. Systems, such as weather systems,
ROSS, email services, etc., must be accessed on a daily basis for the use of
forecasting, information dissemination, and resource planning. Internet access can
be provided either by the local unit, through the use of an Internet Service
Provider via a DSL/Cable Internet connection, or through the use of a partner’s or
vendor’s internet connection, such as a hotel. When possible, a hard-line Internet
access is preferred to a wireless Internet access. An internet up/down link of
256KB/Sec at a minimum would be required, an up/down link of 1.5MB/Sec
would be recommended.
Agency Permission for Internet Access: If Internet access is going to be provided
by the local agency, through the local agencies Internet connection, permission
should be requested previous to the FUMT arriving at the incident.
31
Charles M. Russell National Wildlife Refuge
Wildland Fire Use Project 09/29/2006
•
•
•
Introduction, Objectives, Actions
Recommendations, and Appendices
Telephone services. Public information dissemination is critical to the success of a
Fire Use incident, as well as daily communications between FUMT members and
local agency representatives, cooperators, and contractors. As such, having access
to several telephone connections is vital. At a minimum the physical location used
by the FUMT should have six phone connections – one of these will be used as a
fax service.
Power Outlets: Easy access to power outlets would facilitate in setting up the
FUMT kits. There should be enough power outlets in the physical room setup for
the FUMT so that all IT equipment can be powered appropriately. Having spare
extension cords and surge protectors will also facilitate the setup process.
Contact Information: Providing a contact list of the local IT support personnel, as
well of contact information for the closest stores which sell IT products, is
invaluable on the onset of the Fire Use incident. Information such as contact
name, contact phone number, store hours, etc., should be included in the contact
list. Products such as toner, plotter paper, computer hardware, software, and
miscellaneous computer supplies are usually purchased while on the incident.
32
Charles M. Russell National Wildlife Refuge
Wildland Fire Use Project 09/29/2006
Introduction, Objectives, Actions
Recommendations, and Appendices
Appendix D:
Fire Behavior Inputs
Weather
Fire Behavior Outputs
Using
FARSITE and FlamMap
33
Fire Behavior Inputs – Weather Assessment
Weather Stations
Six weather stations are available for use to model historic weather and prepare weather scenarios
for long-term fire behavior assessments. All six stations are managed by BLM. Weather from
the Chain Butte station will likely provide the best information for the proposed MMA in the UL
Bend area. All six stations have been included in the CMR fire family plus database (CMR.dbd).
Data is good through September 25, 2006. Comments on each station are included below.
Manning Corral – 240809. Starts 8/20/1997 through 9/25/2006 Data is nearly complete year
round. Missing 9/30/1997 to 10/1/1997.
King Coulee – 240903 Starts 11/04/1987 through 12/31/1995. Start 4/1/1996 – 11/24/1996;
2/1/1997 - 9/25/2006. Missing 9/30/1997 to 10/1/1997.
Armells – 242205 Starts 10/27/1991 through 12/31/1995; 4/2/1996 – 11/24/1996; 2/1/1997 9/25/2006 Missing 9/30/1997 to 10/1/1997
Chain Butte – 242302 Starts 5/6/1981 – 9/29/1981; 4/22/1982 – 11/12/1982; 3/15/1983 –
11/17/1983; 3/19/1984 – 11/28/1984; 1/2/1985 – 12/31/1995; 4/2/1996 – 11/24/1996; 2/1/1997 9/25/2006 Missing 9/30/1997 to 10/1/1997. Precipitation for 1994 and 1995 is very
problematic and needs to be cleaned.
Dry Blood Creek – 242303 Starts 8/20/1997 – 9/25/2006 Missing 9/30/1997 to 10/1/1997.
South Sawmill – 242403 Starts 4/26/1982 – 11/12/1982; 3/15/1983 – 11/17/1983; (missing 7/27
– 8/6 and other dates); 3/19/1984 – 11/28/1984 (missing dates, primarily at tails of season);
1/2/1985 – 12/31/1995; 4/2/1996 – 11/24/1996; 2/1/1997 - 9/26/2006 Missing 9/30/1997 to
10/1/1997.
For all stations, generally prior to 1994, data is missing for a few days, particularly in the
shoulder seasons. It’s usually pretty complete for July and August. After 1994, the data is mostly
complete. Mike Granger indicated that the missing data for 9/30 and 10/1 could be because of
servicing the stations. It is recommended that the data be reviewed and completed for best future
data analysis.
Chain Butte weather station was used for all analysis included here.
General warming trend?
In many areas throughout the country the weather stations show a clear warming trend over 20 to
30 years. If this is indicated by the data, it would be inappropriate to use all the data to determine
current trends and seasonal severity. Using the last decade of data may perhaps better indicate a
current fire year relative to recent trends. Monthly average temperatures recorded at the Chain
Butte station do not demonstrate a clear warming trend.
Monthly Mean Temperatures
95
Temperature in Degrees F
90
85
1981
80
1985
1990
75
1995
70
2000
2005
65
2006
60
55
50
June
July
August
Sept
Month
Mean monthly temperature for all years for July and August indicate a generally warming trend.
Although it may be appropriate to continue using all the data from 1981 to present, the trend
should continue to be assessed and subjected to statistical analysis to determine when to no longer
use the less severe data from the early years. (Data should only be removed from the beginning
of the data range. It is recommended to use a minimum of 10 years and at no point remove an
individual year or group of years within the data range.)
Year
20
05
20
03
20
01
19
99
19
97
19
95
19
93
19
91
19
89
19
87
19
85
19
83
19
81
Temperature Degrees F
20
05
20
03
20
01
19
99
19
97
19
95
19
93
19
91
19
89
19
87
19
85
19
83
19
81
Temperature Degrees F
July Mean Temperature
95
90
85
Series1
80
75
70
Year
August Mean Temperature
95
90
85
Series1
80
75
70
Winds Assessment
Winds from the Chain Butte station were assessed. Large fire growth in most of the fuels on the
refuge is dependent on wind. Winds were assessed as to their direction and wind speed. Winds
from the west and north are more abundant than winds from the east and south during May
through November. The stronger winds tend to also come from the west and north.
More than 60 percent of the winds greater than 5 mph come from the west through northeast.
Large Fire Growth
Refuge fire management personnel indicated that large fire growth generally occurs when the
temperature is above 90 degrees, the relative humidity is below 20%, and the winds are greater
than 10 mph. Using Chain Butte data, it was determine that in the 25 years of records, there were
64 days with these conditions; 1 in May, 6 in June, 22 in July, 28 in August, and 7 in September..
On average it can be expected that there will be at least one large fire growth event in both July
and August. It must be remembered that the station data available includes only the 10 minute
average winds at 2pm. It is likely that this is an underestimate of the frequency of this
occurrence. Retrieval of the hourly data and assessment of the frequency of this event is
recommended in order to make more accurate long-term assessments and determine expected
frequency of large fire growth days during an event. Two additional recommendations to
improve this information are: A) Look at frequency of these events by year to determine if there
is a general pattern. Are there some years when there are 5 events while other years have no
events? Are there conditions that can help predict the likelihood of these events? B) Look at the
weather conditions for numerous fires to determine what the conditions were when there was
large fire growth. This requires good daily progression maps. Collecting this data will help
correlate large fire growth to the data available through Fire Family Plus.
Seasonal Severity
The refuge uses Burning Index to determine seasonal severity. In general BI is higher early in the
season, decreases after greenup (May 15), increases through the summer and levels off during fall
and winter. A review of BI for three large fire seasons indicates that during 1988 and 2006, BI
was near or set historical maximums while 1994 was near average during the summer fire season.
The high spring BI indicates that if there are ignitions prior to greenup, fires have potential to
burn.
Season-ending/Fire-ending events
Fires on the refuge generally last from 3 to 7 days. Typically the majority of the perimeter burns
out of fuel making it feasible to suppress the active perimeter. Suppression is greatly aided by
rain events and cloud cover for fires in the fine fuels. Given this history, it may be more
appropriate to consider fire ending or fire slowing events.
Refuge personnel stated that fires generally slow and can be completed suppressed following a
rain event -two days of continuous rain with at least 1 ½ inches. After the first such event in
September, natural ignitions are rare due to cooler temperatures and shorter days. Because of the
current policy of full suppression, a true fire ending and season ending event is difficult to
determine. Some fires, in a wildland fire use status, may hold through a rain event and continue
to burn once drying occurs, particularly fires in grasses under a tree canopy.
With the Chain Butte station, there are only 4 years with 2 days of rain with a total of 1.5 inches
or greater after July. Season ending (fire ending) event was determined to be a several day rain
event after August in which there was at least a few days of rain greater than 0.05 inches and
there were similar events shortly after this. This usually followed a rain event of greater than 0.5
inches (often in August). Dates from Chain Butte were the same as those from Manning Corral
for the years available, indicating widespread events.
In this situation where fires are likely to be short duration, the chronology and frequency of fire
ending events will be the most beneficial information for “long-term” assessments. In most
years, there is a fire ending event in September. In fact, there is a 99% chance that a fire ending
event will occur by October 1.
Fire Behavior Outputs – Using FARSITE and FlamMap
Development of Fuels Data for Charles M. Russell National Wildlife Refuge
Fuel layers were developed using Montana GAP vegetation and the guidance from local subject matter experts. These
fuel layers (fuel model, canopy cover, stand height, canopy base height and canopy bulk density) were then used to
create a Fire Area Simulator (FARSITE) landscape that also incorporates elevation, slope and aspect. Fuel layers were
modified in the areas of the 2003 and 2006 fires as recommended by Mike Granger, CMR FMO. (See
CMR_FARSITE_ReadMe.doc for more information.)
Fuel Model Map (using new Scott-Burgan fuel models) for UL Bend area fuels map from developed using Montana
GAP vegetation data
“Testing” and validating this landscape was accomplished by doing a FARSITE simulation using weather and wind
observations from the Chain Butte RAWS on July 17 – 19 of 2006. The Infrared Intense Heat for the early morning of
July 17th was used as an ignition file. The black line below is the fire growth of the Black Pulaski Fire during the time
period and the yellow line is FARSITE’s projected perimeter. As can be seen from this “calibration” run (figure
below) the fire over-predicted growth on the south side. This simulation did not simulate any suppression action.
However, according to Mike Granger some successful burnout operations along the road did occur on the south end of
the actual fire. With this in mind, the figure below indicates a reasonable agreement between actual and simulated fire
spread.
FARSITE “calibration” run completed to test the CMR landscape
FlamMap is a tool which calculates fire behavior outputs for each 90 meter cell on the landscape given a set of wind
and weather conditions, therefore these outputs are a “snapshot in time”. FlamMap was used to determine
approximate flamelengths and rates of spread given two different wind scenarios.
Moderate Winds Inputs included:
15 mph south winds
Dry fuel moistures:
3% 1 hour fuels
4% 10 hour fuels
5% 100 hour fuels
30% live herbaceous
60% live woody
Moderate Conditions FLAME LENGTH Outputs
Moderate Winds Inputs included:
15 mph south winds
Dry fuel moistures:
3% 1 hour fuels
4% 10 hour fuels
5% 100 hour fuels
30% live herbaceous
60% live woody
Moderate Conditions RATES of Spread Outputs
EXTREME Winds
Inputs included:
45 mph northwest winds
Dry fuel moistures:
3% 1 hour fuels
4% 10 hour fuels
5% 100 hour fuels
30% live herbaceous
60% live woody
EXTREME Conditions FLAME LENGTH Outputs
EXTREME Winds
Inputs included:
45 mph northwest winds
Dry fuel moistures:
3% 1 hour fuels
4% 10 hour fuels
5% 100 hour fuels
30% live herbaceous
60% live woody
EXTREME Conditions RATES of Spread Outputs
Appendix E:
GIS Recommendations
While the refuge is very rich in good GIS data there are a number of issues that may keep the GIS
data from being as useful as it could be. Since there is not a dedicated refuge GIS specialist the
data is not always up-to-date and is in some cases in different projections and datums. In addition
since the data was developed by a number of people over a long period of time and some data is
duplicated, it is not always obvious which data is valid or what the data actually represents. Also,
since fires routinely cross agency boundaries GIS support, fire decision-making and planning
would ideally include seamless data from all the agencies. Much of this data probably exists but it
exists in many locations with different projections, datums and attribute definitions.
Data that is useful for supporting wildland fire use as well as general fire planning and operations
is described in the Appendix B of the Wildland Fire Use Implementation Procedures Reference
Guide.
The recommendations listed below would address these issues.
• Important layers that are out-of-date should be updated and out-of-date layers that are to
be kept for historical reference should be clearly labeled as such.
• Structure and other values should have accurate location and attribute data. The locations
of structures and other values developed for this exercise are VERY approximate.
• Most of the refuge GIS data is in North American Datum 1927 and federal guidance is to
use North American Datum 1983.
• Much of the GIS data is duplicated and there is little metadata available.
o The most current and accurate data to support fire GIS planning should be put
into a single folder or external hard drive for use by incoming IMTs or local fire
planning and should be updated as necessary.
• An effort should be made among all of the cooperative agencies to collect their fire
related data in one location, update the data, convert it to a common projection and datum
and put it in a location where it is available to all the agencies for use by incoming teams
and for local fire planning.
• LANDFIRE data for the entire fire planning unit should be available later this year and
the cooperating agencies should validate this data (especially the fuel data) to ensure that
it is appropriate for planning use in this area.