Wildland Fire Use Lessons Learned in

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1 A Lessons Learned Newsletter Published Quarterly Issue Knowledge management is getting the right information to the right people at the right time. In This Issue Page 1 Lessons Learned in 2004 Lesson Learned An innovative approach or work practice that is captured and shared to promote repeat application. A lesson learned may also be an adverse work practice or experience that is captured or shared to avoid recurrence. Best Practice A process, technique, or innovative use of resources, technology, or equipment that has a proven record of success in providing significant improvement to an organization. How to Contact Uss: pnasiatka@fs.fed.us dchristenson@fs.fed.us (520) or 8761 fax (520) Lessons Learned in A Lessons Learned Center information collection team interviewed local agency personnel, Fire Use Management Team (FUMT) members, Fire Use Regrowth Voyageurs NP WFU Photograph by Modules and other Teri Tucker resources on a (WFU) event in the Pacific Northwest during August The unit was managing their first WFU under a revised fire management plan. There were numerous lessons learned many of which are highlighted in this article. Preparing Internal Stakeholders for Wildland Fire Use At a national level, agency leaders who intend to implement wildland fire use (WFU) need to continually prepare their own personnel to accept and support the principle and foster an environment that breaks down any internal barriers to WFU implementation. A lack of internal understanding and support hinders some WFU implementation. There also exists a need to: 1. Foster a multi-component view of fire management that includes suppression, prescribed fire, and WFU 2. Widely disseminate the accepted definition of WFU 3. Explain to personnel that the future includes a substantial WFU component 4. Aid employees in understanding that WFU requires a degree of managed risk tolerance 5. Communicate the practical aspects of WFU including cost effectiveness 6. Create a cache and ordering system that adequately supports the WFU mission All Fire Management Personnel Need Adequate Exposure Personnel currently involved in WFU reported a need to expose all fire management personnel to WFU definitions, applications, and 1

2 terminology in the NWCG S-100 and 200 level training curriculums and at annual safety refreshers. This will help mentally prepare people for WFU assignments as being within the entire range of potential fire assignments. WFU tactical and fire behavior training does not need to differ from standard suppression training except to include Minimum Impact Suppression Tactics (MIST). The existence of a strong crossover between WFU and suppression was mentioned in the aviation function. Aviation personnel related that generally all that really differs from suppression aviation operations is the pace. Several operations personnel, with suppression backgrounds, observed that one just needs to come with an open mind regarding WFU and then constantly remind WILDLAND FIRE USE DEFINITIONS The management of naturally ignited wildland fires to accomplish specific prestated resource management objectives in predefined geographic areas outlined in Fire Management Plans. Wildland Fire Inplementation Plan (WFIP) A progressively developed assessment and operational management plan that documents the analysis and selection of strategies and describes the appropriate management response for a wildland fire being managed for resource benefits. Fire Use Management Team (FUMT) Interagency team who provides a specialized management organization to fulfill the need for assigned resource support to fire use actions that exceed local units management capability at activity levels experienced during long duration situations or when preparedness levels are high and high priority fires with protection objectives are requiring large resource commitments. Fire Use Module A team of skilled and mobile personnel dedicated primarily to prescribed fire management. These are national and interagency resources, available throughout the prescribed fire season, that can ignite, hold and monitor prescribed fires. Preparing for WFU Assignments Past experience has shown that resources coming from a primarily fire suppression orientation face a unique challenge when dispatched to WFU incidents. Specifically, fire suppression resources reporting to WFU incidents need to prepare and adjust their operational mind-set in order to effectively contribute to the event. Notably, fire suppression-oriented resources need to: Expect a slower pace at which the event will produce a product Adjust to the concept of not putting a fire out Understand operational expectations andprocedures of a WFU event Prepare for WFU operational requirements including those in the Wildland Fire Implementation Plan (WFIP) documentation during early stages of the event Understand that weather and fire behavior moderation do not terminate WFU operations One Division Supervisor described WFU operations as kind of a blend of prescribed fire and suppression. He noted that supervising a Fire Use Module (FUM) requires much less direct supervision, but far greater sharing of information and coordination. He also felt he individually had much more flexibility than normal particularly with regards to operational decisions. themselves as to their role in fulfilling this purpose and goal at the event. Operations personnel also recommend that suppression resources who may participate in WFU assignments simply remember that things they do to prepare themselves for a suppression fire assignment constitute many of the same things one must do as preparation for a WFU assignment such as ensuring availability and utilization of proper PPE and tools. Provide WFU Orientation for Incoming Resources Wildland fire personnel need a quality briefing upon reporting to a WFU event. The briefing information should include background on WFU, the Wildland Fire Implementation Plan (WFIP) for the event, and what their role will be in achieving the desired results. Generally, incoming suppression resources are both seeking, and in need of, some guidance from the overhead team which also builds philosophical support for the WFU effort. Unit Cohesion in a Fire Use Module Much like Hotshots, Fire Use Modules (FUM) face the challenge of living together 24 hours per day for an extended period which includes extensive periods of overtime. This requires a focus on people management. One FUM Leader recommends overcoming this challenge by implementing the idea of learning after doing 2

3 through their After Action Reviews (AAR). This also aids in maintaining open communications and a team orientation environment. This atmosphere builds on the module s individual and group strengths, including their common interests and the common values toward stewardship for the land. Effective and Productive Data Collection Among their many duties, a Fire Use Module (FUM) collects weather and fire behavior observations, fuels data, and information for a written event narrative. One FUM Leader said his module collects and manages their data using PhotoLink software. They can then hand the data off to the Fire Use Manager or Fire Use Management Team on a CD-ROM. When an assignment focuses on data collection, a FUM needs to balance data needs with the module s productivity. Without actively managing these data collection tasks, there is a potential that module members will manage only to collect a great deal of data on only one part of the fire and fail to cover the entire area of the incident where they have been assigned. A trend has been noted where Long Term Analysts and Fire Behavior Analysts are asking the Fire Use Modules to collect enormous amounts of data. Sharpen Situational Awareness Skills for WFU Individual field resources deployed on WFU incidents must hone their situational awareness skills, and recognize the fact that they will be on their own as an independent single resource substantially more often than on suppression assignments. WFU personnel therefore need to be proficient in maintaining situational awareness and locating and managing their own Lookouts/Communications/ Escape Routes and Safety Zones (LCES). Resource Advisors and Briefings Local resource advisors should not assume that arriving crews and modules have much knowledge about an agency, unit, or local wilderness standards and policies. Therefore, all line resources must be briefed on local area specific issues and procedures to include Minimum Impact Suppression Techniques (MIST) and minimum impact camping requirements. The resource advisor thus needs to consider personnel needs and operational requirements when planning their briefing. For example, if crews arrive after a long day of travel, it usually is more productive to conduct the briefing the following morning. On the other hand, if crews will need to acquire specific supplies or equipment for line use, the resource advisor should ensure that they are briefed about these needs well in advance. Resource advisors need to be explicit regarding procedures Fire Use Management Teams (FUMT) and line personnel will follow. These include policies for helispot construction, trail specifications to accommodate pack mules and horses, Minimum Impact Suppression Techniques (MIST), minimum impact camping, and fire effects plot installation. Resource advisor briefings also need to spell out backcountry camp standard operating procedures. In order to maintain continuity, they should also be participants in regularly scheduled FUMT briefings and planning meetings. Wilderness Boundaries and Maximum Manageable Areas (MMA) Agency units implementing WFU need to seriously consider whether their wilderness boundaries represent defensible MMAs. One Operations Section Chief recommended thinking of the MMA in terms of an inner box Remember that a fire use event is more like a marathon than a sprint. The agency administrator and host unit need to prepare mentally and remember that the WFU incident is likely be a long-term event. The activities of managing a WFU incident do not necessarily require immediate decisions or quick response. Agency administrator of WFU event 3

4 and an outer box. He advised identifying natural barriers and other anchor points, from which a burn out could be conducted, with the intent of keeping the fire within the MMA. A distant ridge, for example, could define the outer box with the intent of defending against the fire exceeding this MMA. The inner box would have areas identified to be burned out should the fire reach certain management action points (trigger points) between the inner and outer boxes. The key concept to the strategy is to prevent the labor, cost and exposure of personnel to risks associated with repeated cycles of committing and pulling back resources. Acquiring Weather Data Local units contemplating WFU can best prepare themselves when agency administrators ensure that their units have acquired years of weather data to utilize during their land management and fire management planning processes. As part of preplanning, they also need to ensure they have representative Remote Automated Use an Interdisciplinary Approach to Prepare the WFIP On one WFU event, the host unit assembled an interdisciplinary (ID) team that included a Fire Use Manager, Hydrologist, Biologist, Ecologist and Wilderness/Recreation Assistant to prepare the Wildland Fire Implementation Plan (WFIP). The ID team identified key information needed in the Short-term Implementation Actions (WFIP Stage II) analysis, and critical resource concerns. The inclusion of a Fire Use Manager in this process was essential and proved very valuable to the unit. The ID team also felt that they could have also used the services of a Long Term Analyst (LTAN), to provide long-range predictions. The purpose of the Stage II document is to develop a short-term management plan under which the fire will be managed while the Long-term Implementation Actions (Stage III) analysis is being completed. Some WILDLAND FIRE USE DEFINITIONS Remote Automatic Weather Station (RAWS) An apparatus that automatically acquires, processes, and stores local weather data for later transmission to the GOES Satellite, from which the data is re-transmitted to an earth-receiving station for use in the National Fire Danger Rating System. Maximum Manageable Area (MMA) Delineates the ultimate acceptable size for a given wildland fire managed for resource benefits. Management Action Point (Trigger Point) Tactical decision point, either geographical point on the ground or specific point in time where an escalation or alteration of management actions is warranted in response to fire activity and identified threats. Weather Station (RAWS) coverage for areas where they anticipate utilization of WFU. If units cannot establish representative RAWS, they should try to fill these data gaps from their Regional Climate Center and consider establishing a RAWS to validate and track weather data for local conditions. Local Units Must Train to Prepare WFIP Agencies should include the Wildland Fire Implementation Plan (WFIP) process and preparation as part of their local training as they include WFU in their Land Management Plans and Fire Management Plans. Annual refresher training should be conducted prior to each fire season. A WFIP preparation simulation exercise should be included. Units planning to implement WFU should have appropriate staff trained including completion of S-580 (Advanced Fire Use Applications). Staff should also participate in trainee assignments to become a qualified Fire Use Manager (FUMA). FUMT personnel report that expecting to have an LTAN available to do long-range analysis under the time constraints imposed on the Stage II planning process is generally unrealistic. Still, the ID team reported that the presence of a LTAN during this process would have been extremely helpful. FUMT to Manage All Aspects of the Incident Agency administrators should expect that the FUMT is capable of managing all aspects of the incident including collecting and analyzing data, managing resources, handling logistics, identifying management action points/trigger points, and responding to contingencies. The FUMT must develop a well thought out plan that includes appropriate timetables, addresses safety considerations, plans reasonable actions, and facilitates decision-making in WFIP Long-term Implementation Actions (Stage III.) 4

5 the host agency, and should expect many people with program or other oversight responsibilities to visit the Incident Command Post. This is most often the case when serving units with little prior WFU experience. Conversely, excessive oversight, interest, and concern from the host agency can negatively impact FUMT operations by distracting FUMT members from their primary duties. A good relationship entails striking a balance. Agency administrators need to be cognizant that their visits impact operations. FUMTs need to be aware of local factors that influence fire management decisions and therefore the comfort level of agency administrators and local unit staff. Risk Communications and the Information Plan Bluff WFU Lasser Volcanic National Park, CA Photograph by Mike Lewelling FUMT Command Post Needs A Fire Use Management Team (FUMT) will most likely need to be located at the host unit s office facility. This differs from utilizing an Incident Command Post that is closer to the incident as an IMT managing a suppression assignment would desire. The reason for this is FUMTs are computer intensive; requiring multiple electrical outlets, dynamic host configuration protocol (DHCP) lines at U.S. Forest Service units, and general information technology support. The agency administrator and their staff therefore must carefully consider where they anticipate placing a FUMT, giving consideration to how FUMT activities will impact the local unit. A primary responsibility of the fire information officer on a WFU is the information plan. According to one FUMT Fire Information Officer, high-risk activities, such as fire, require a risk communication approach to the plan. In brief, risk communication engages in high concern communication as opposed to low concern communication, and uses scientific methods to verify how communication influences human behaviors. Additional information on Risk Communications can be found at: Bluff WFU Lasser Volcanic National Park, CA Photograph by Mike Lewelling Balance Between Oversight and Team Operations Agency administrators must fully engage with the FUMT, and must be comfortable with the various decisions made by the team. A FUMT may spend a significant amount of their time educating and mentoring 5