Wildland Fire and Aviation Program Management Operations Guide. Department of the Interior Bureau of Indian Affairs

Transcription

1 Wildland Fire and Aviation Program Management Operations Guide Department of the Interior Bureau of Indian Affairs

2 PREFACE This guide is a program reference that documents policy for management and operations of the Wildland Fire and Aviation Management Program for the Bureau of Indian Affairs (BIA}. Information presented here is based on current policy and provides program guidance to ensure safe, consistent, efficient and effective Wildland Fire and Aviation Operations. Byreau of lndjan Affajrs Mjssjon: To enhance quality of life, to promote economic opportunity and to carry out responsibility to protect and improve the trust assets of American Indian, Indian Tribes, and Alaska Natives. This will be accomplished through the delivery of quality of services and maintaining government-to-government relationships within the spirit of Indian selfdetermination. Branch of Wildland Fire Management Mission: To execute its fiduciary responsibility by protecting lives, property and resources while restoring and maintaining healthy ecosystems through cost-effective and creative fire-management programs, collaboration and promoting Indian self-determination. The Wildland Fire and Aviation Program Management and Operations Guide 2013 replaces the 2011 version of this guide. Many sections of the 2011 guide have been updated in this revised 2013 edition to better reflect current policy, business practices and operations for the BIA Wildland Fire and Aviation Management Program. This document is policy for the BIA Wildland Fire and Aviation Management Program. Director, Branch of Fire Management Date

3 Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 Chapter 8 Chapter 9 Chapter 10 Chapter 11 Chapter 12 Chapter 13 Chapter 14 Chapter 15 Chapter 16 Chapter 17 Chapter 18 BIA Wildland Fire and Aviation Program Organization and Responsibilities Program Policy, Leadership and Guidance Program Planning Program Preparedness/Readiness Wildfire Prevention Fire Fighting Equipment Aviation Operations Safety and Risk Management Business Management and Administration Incident Organization, Management and Operations Developing a Response to Wildfires Firefighting Training and Qualifications Budget Management Emergency Stabilization (ES) and Burned Area Rehabilitation (BAR) Programs Rural Fire Assistance/Ready Reserve Programs Tribal Contracts/Compacts Reviews and Investigations Suppression Chemicals & Deliver Systems

4 TABLE OF CONTENTS Chapter 1 BIA Wildland Fire and Aviation Program Organization and Responsibilities Introduction1-1 Wildland Fire Management Organization 1-1 Oversight Responsibilities 1-1 Director, Branch of Wildland Fire Management 1-1 Deputy Director, Branch of Wildland Fire Management1-2 Assistant Director, Fire Operations 1-3 Associate Director, Fire Use & Fuels Management 1-3 Assistant Director, Planning 1-3 Assistant Director, Training 1-4 Aviation Program Manager 1-4 APPENDIX Bureau of Indian Affairs Wildland Fire & Aviation Management Organization Chart 1-6 Chapter 2 Policy, Leadership and Guidance Introduction2-1 Federal Wildland Fire Policy2-1 Guiding Principles 2-2 Federal Wildland Fire Management Policy 2-3 Guidance for Implementation of the Federal Wildland Fire Management Policy 2-6 Implementation of the Federal Wildland Fire Management Policy 2-7 Department of the Interior Wildland Fire Management Policy (1998) 2-8 Secretary of the Interior 2-8 Assistant Secretary - Policy, Management and Budget (PMB) 2-8 Assistant Secretaries for Land Minerals Management, Fish and Wildlife and Parks and Indian Affairs 2-8 Bureau of Indian Affairs Fire Management Policy 2-8 Mission 2-9 Wildland Fire Management Objectives 2-9 Responsibility2-9 Wildland Fire Program Leadership 2-10 Wildland Fire Leadership Council (WFLC) Federal Fire Policy Council (FFPC) Fire Executive Council (FEC) Interior Fire Executive Council (IFEC) RELEASE DATE AUGUST 2013 iii

5 TABLE OF CONTENTS National Wildfire Coordinating Group (NWCG) Wildland Fire Coordinating Groups 2-12 Office of Wildland Fire Coordination (OWFC) National Multi-Agency Coordination Group (NMAC) Geographic Multi-Agency Coordination Groups (GMAC) Federal Emergency Management Agency (FEMA) National Interagency Coordination Center (NICC) Geographic Area Coordination Centers (GACC) Wildland Fire Interagency Agreements for Coordination and Cooperation 2-13 Department of the Interior and Department of Agriculture Interagency Agreement International Agreements Memorandum of Understanding with Fire Departments Interagency Agreement with US Fish and Wildlife Service and the National Marine Fisheries Service National Standards - Guides and Handbooks 2-14 National Interagency Mobilization Guide (NFES 2092) Incident Response Pocket Guide (PMS 461) Memorandum of Understanding with Fire Departments Wildland Fire Qualifications System Guide (PMS 310-1) Fireline Handbook (PMS 410-1) Interagency Prescribed Fire Planning and Implementation Procedures Guide Interagency Incident Business Management Handbook (PMS 902) The Interagency Burned Area Emergency Response Guidebook and Interagency Burned Area Rehabilitation Guidebook Chapter 3 Program Planning Fire Management Plans 3-1 Purpose Procedures NEPA and the Fire Management Plan Program Assessment 3-4 Fire Budget Analysis Fire Program Workload Shares Fire Program Complexity Situational Decision Support 3-6 Support Planning Elements 3-8 Fire Season Length and Determination RELEASE DATE AUGUST 2013 iv

6 TABLE OF CONTENTS Unit Identifiers Fire Danger Rating Fire Occurrence Data and Reporting 3-12 Scope and Purpose Data Sources, Forms, Reports, and Systems 3-12 Individual Fire Reports (DI-1202-BIA)3-13 Incident Status Summary Reports (ICS-209) 3-16 Situation Report 3-16 Records Management for Fire Reports 3-18 Fire Weather 3-19 Fire Weather Stations 3-20 APPENDIX Interagency FMP Template 3-24 Chapter 4 Program Preparedness/Readiness Introduction 4-1 Preseason Agreements, Contracts and Operating Plans Authorities Responsibility and Procedure Agreement Elements Types of Agreements Annual Operating Plans for Agreements Contracts Emergency Assistance to other Jurisdictions Federal Management Agency and the WFM Program Program Preparedness/Readiness Reviews Purpose Fire and Aviation Safety Reviews Purpose Administratively Determined Casual Pay Reviews FireCode FireCode Application FireCode Business Rules National Fire Danger Rating System (NFDRS) Introduction NFDRS and Program Management Seasonal Risk Analysis (SRA) Introduction Severity Definition Objective Interagency Severity Requests RELEASE DATE AUGUST 2013 v

7 TABLE OF CONTENTS Requesting Fire Severity Funding Typical Uses Authorization Short Term Severity Funding National Severity Level Funding Labor Cost Coding for Severity Funding Personnel Documentation Severity Audits Radio Communications Policy Radio Frequency Management Pre-Assigned National Frequencies APPENDIX Interagency Severity Funding Request (AF ) APPENDIX Automated Information Systems APPENDIX BIA FireCode Activity Matrix Chapter 5 Wildfire Prevention Introduction Wildfire Prevention Program Guidance Current Program Prevention Planning Funding Opportunities for Prevention Activities Prevention Program Monitoring and Review Wildfire Fire Investigation National WeTIP Program APPENDIX BIA Wildland Fire Prevention Specialist Assignments Chapter 6 Fire Fighting Equipment Introduction National Model 52 Wildland Engine Program Mission/Policy Model 52 Replacement Guidelines Organization Administration Emergency Repairs Non-Emergency/Non-Suppression Repairs Operational Procedures Engine Crew Staffing RELEASE DATE AUGUST 2013 vi

8 TABLE OF CONTENTS Driving Standards Commercial Driver s License Casuals Hired as Drivers when Employed by BIA Standards for Wildland Engines Engine Water Reserve Chocks Fire Extinguisher Non-Skid Surfaces First Aid Kit Gross Vehicle Weight Speed Limits Lighting Emergency Light Use Fuel Use, Storage and Transportation Fire Engine Maintenance Procedure and Record Vehicle Repairs Maintenance Engine Inventories Water Tenders Water Tender (Non-Tactical) Water Tender (Tactical) Dozer/Tractor Plows Dozer/Tractor Plow Training and Qualifications Dozer/Tractor Plow Physical Fitness Standards Dozer/Tractor Plow Operational Procedures All Terrain Vehicles (ATV)/Utility Terrain Vehicles (UTV) Required PPE ATV Head Protection UTV Head Protection Eye Protection Operating ATV/UTV on the Fireline Requirements Aerial Ignition Devices Ground Ignition Devices APPENDIX Engine Equipment Inventory Chapter 7 Aviation Operations Purpose and Scope Organization Responsibilities National Office Office of Aviation Services (OAS) National Aviation Program Regional Office Level RELEASE DATE AUGUST 2013 vii

9 TABLE OF CONTENTS Agency/Field Office Level Aviation Information Resources Reference Materials Aviation Safety Risk Assessment and Risk Management How to Properly Refuse Risk (Aviation) Aviation Safety Support Aviation Safety Briefing Aviation Hazard Aerial Applications of Wildland Fire Chemical Safety SAFECOM Aircraft Incidents/Accidents Low Level Flight Operations Operational Procedures Congested Area Flight Operations Airspace Coordination Flight Request and Approval Point-to-Point Flights Mission Flights Flight-Following All Aircraft Sterile Cockpit All Aircraft Interagency Interim Flight and Duty Limitations/Aviation Stand Downs Interim Flight and Duty Limitations Implementation Phase 1 - Standard Flight and Duty Limitations (Abbreviated Summary) Phase 2 - Interim Duty Limitations Phase 3 - Interim Duty Limitations Aviation Assets Helitack Organization-Crew Size Operational Procedures Communication Transportation Training and Experience Requirements Physical Fitness Standards Helicopter Rappel and Cargo Let-Down Aerial Ignition Fire Chemical Avoidance Areas Aerial Supervision Air Tactical Group Supervisor (ATGS) Operational Considerations Leadplane Aerial Supervision Module (ASM) RELEASE DATE AUGUST 2013 viii

10 TABLE OF CONTENTS Operational Considerations Policy Aerial Supervision Module Program Training and Qualifications Reconnaissance or Patrol Flights Airtankers Airtanker Base Operations Airtanker Base Personnel Startup/Cutoff Time for Mult-Engine Airtankers Single Engine Airtankers Single Engine Airtanker (SEAT) Operations, Procedures and Safety SEAT Manager Position Operational Procedures Smokejumper Pilots Military or National Guard Helicopters and Pilots Modular Airborne Fire Fighting System (MAFFS) APPENDIX Aerial Supervision APPENDIX SAFECOM APPENDIX BIA Exclusive Use Fire Helicopter Module Positions Chapter 8 Safety and Risk Management Introduction Policy Guiding Principles Goal Definitions Risk Management Process Risk Assessment (RA) Work/Rest Assignment Definition Length of Assignment Days Off Assignment Extension Single Resource/Kind Extensions Incident Management Team Extensions Management Directed Days Off at Home Unit Motor Vehicle Operation Policy Policy Driver Qualifications Roles & Responsibilities of Supervisors Terminate Drive Privileges for a Motor Vehicle Operator RELEASE DATE AUGUST 2013 ix

11 TABLE OF CONTENTS Motor Vehicle Operator Requirements General Driving Policy Mobilization and Demobilization Incident Operations Driving Casuals Hired as Drivers when Employed by the BIA Fire Vehicle Operation Standards Management Controls to Mitigate Exposure Wildlife Fire Field Attire Personal Protective Equipment (PPE) Required Fireline PPE Wildland Fire Boot Standard Fire Shelters Head Protection Eye and Face Protection Hearing Protection Neck Protection Leg Protection Respiratory Protection Specialized or Non-Standard Personal Protective Equipment (PPE) High Visibility Vests Fireline Safety Incident Briefings LCES-A System for Operational Safety Right to Refuse Risk Smoke and Carbon Monoxide Location of Fire Camps and Plans to Remain in Place Standard Safety Flagging Emergency Medical Planning and Services Emergency Medical Response Incident Emergency Management Planning Air Ambulance Coordination Incident Emergency Medical Services Required Treatment for Burn Injuries Burn Injury Criteria Explosives, Munitions and Unexploded Ordnance (UXO) Notifications Industrial and Naturally Occurring Hazardous Exposures Dump and Spill Sites Responding to Wildland Fires in or near Oil/Gas Operations Responding to Wildland Fires in or Near Radioactive Locations Hazardous Water Sources Hydrogen Cyanide (HCN) Exposure RELEASE DATE AUGUST 2013 x

12 TABLE OF CONTENTS Safety for Non-Operational Personnel Visiting Fires Visits to an Incident Base Fireline Logistical Support Minimum Requirements for Visits to the Fireline/RX Burns Non-Escorted Visits Escorted Visits Helicopter Observation Flights Fixed-Wing Observation Flights Six Minutes for Safety Training SAFENET Accident/Injury Reporting Critical Incident Management Critical Incident Stress Management (CISM) Chapter 9 Business Management and Administration Policy Management of Human Resources Recruitment Responsibilities Organized Crews Casuals Job Corps and Youth Conservation Corps (YCC) Enrollees Hiring of 16 and 17 Year Olds Hiring of Federal Retirees Volunteers Under a Formal Agreement Using Regular Government Employees from Other Federal Agencies Cooperators Casuals Hired as Drivers when Employed by BIA EFF Program Management and Funding Request for Funding Authorization Training Program Funding Process Supplies and Materials Funding Pay Provisions Overtime Pay Exempt and Non-Exempt Firefighting Positions Non-Fire Support Staff Hazard Pay Coding of Time for Fire Management Personnel Time Coding of Time for Non-Fire Management Personnel Personnel Timekeeping/Recording RELEASE DATE AUGUST 2013 xi

13 TABLE OF CONTENTS Timekeeping/Recording Objective Final Emergency Firefighter Time Report OF Commissary Purpose Posting Commissary Issues Responsibility of Travel Travel Authorization and Vouchers Government Integrated Charge Cards Acquisitions Authority Acquisitions Methods Government Integrated Charge Card Micro-Purchase Contracting Officer/Purchasing Agent/Buying Team Member BPA Service and Supply Plan Incident Procedures for Purchasing Integrated Charge Card Template - Fire Types of Fire Templates Restrictions Accountability Voucher for Travel Convenience Checks for Emergency Incident Support Emergency Equipment Rental Agreements (EERA) Centralized Emergency Firefighter Payment Center Agency Administrator (AA) and Fire Management Officer (FMO) Regional Points of Contact Region and Agency Responsibilities All Hazard Incidents Authority Policy Process Pay Provisions Cooperative Relations Chapter 10 Incident Organization, Management and Operations Introduction Incident Organization Incident Command Incident Types Area Command Managing the Incident RELEASE DATE AUGUST 2013 xii

14 TABLE OF CONTENTS Agency Administrator Responsibilities Resource Advisor Responsibilities Incoming Team Transition/Transfer of Command Release of Incident Management Teams Team Evaluation Incident Management Considerations Incident Business Management Cost Containment Large Fire Cost Reviews FLAME Fund Act Coordination and Support Organizations Initial Action Dispatch Expanded Dispatch Buying/Payment Teams Administrative Payment Teams Multi-Agency Cooperation APPENDIX Agency Administrator s Briefing to Incident Management Team APPENDIX Wildfire Delegation of Authority (Example) APPENDIX Incident Commander Briefing APPENDIX Incident Team Evaluation APPENDIX Administrative Payment Team Delegation of Authority (Example) Chapter 11 Developing a Response to Wildfires Introduction Purpose Policy Planning Concepts and Definitions Annual Operating Plan (AOP) and General Elements Mutual Aid Command Structure Communications Distance/Boundaries Time/Duration Qualifications/Minimum Requirements Reimbursement and Compensation Agency Review and Investigations Dispatch Centers Fiscal Responsibility Elements that should be Addressed in an AOP RELEASE DATE AUGUST 2013 xiii

15 TABLE OF CONTENTS Preplanned Response to an Incident Emergency Operations (Fire/Non-Fire) Local Agreements should be Maintained on File and Reviewed Annually with the Respective Cooperators Communications Weather Fire Danger Briefings Preparedness Levels Aviation Dispatch Center Staffing Plan Expanded Dispatch Plan Administrative Accident/Incident Medical Plan Media Plan Responding to Wildfires Definitions Initial Response Initial Action Initial Attack Extended Attack Operations Wildland Fire Situation Analysis (WFSA) Wildland Fire Decision Support System (WFDSS) DOI WFDSS Approval Requirements USFS WFDSS Approval Requirements Periodic Assessment Large Fire Operations Definitions Large Fire Cost Reviews Fuels Management and Hazardous Fuels Program Planning and Implementation Use of Wildland Fire Approvals at Planning Levels 4 and Preparedness Level Preparedness Level APPENDIX Operational Briefing Checklist APPENDIX Spot Weather Forecast Request APPENDIX Delegation of Authority: Type 3, 4 & 5 Incidents RELEASE DATE AUGUST 2013 xiv

16 TABLE OF CONTENTS Chapter 12 Firefighting Training and Qualifications Introduction Policy Responsibilities Director, Branch of Fire Management Regional Directors Agency Superintendents and Line Officers of Tribal Fire Programs Qualification and Certification Process Non-NWCG Agency Personnel Qualifications Non-NWCG Agency Personnel Use on Prescribed Fire Incident Qualifications and Certification System (IQCS) Record Keeping Certification of Non-Agency Personnel Incident Qualification Card Incident Qualification (Red Card) Expiration Dates Universal Training Requirements Annual Fireline Safety Refresher Training Position Certification and Currency Loss of Currency Recertification Considerations Physical Fitness Physical Fitness and Conditioning Medical Examinations Department of Interior Wildland Firefighter Medical Standards Program (DOI/MSP) - Arduous Fitness Level Health Screen Questionnaire (HSQ) Work Capacity Test (WCT) Categories Work Capacity Test (WCT) Administration WCT Retesting Training Management Training Needs Analysis Individual Development Plans (IDP) Position Task Books (PTB) Training Plans Training Nomination Process Instructor Qualifications Course Coordination Course Equivalencies Leadership Training Prevention Training BIA Certified Positions Prescribed Fire Burn Boss 3 (RXB3) RELEASE DATE AUGUST 2013 xv

17 TABLE OF CONTENTS Interagency Hotshot Superintendent Assistant Interagency Hotshot Superintendent Sawyer/Faller Qualifications Emergency Firefighter (AD) Chainsaw Operators BIA Required Training Funding for Training General Schedule and Tribal Contract/Compact Fire Employees AD/EFF Hires Minimum Age Requirements for Hazardous Duty Assignments on Federal Incidents Interagency Hotshot Crews (IHC) IHC Policy IHC Certification Annual Crew Pre-Mobilization Process Annual IHC Readiness Review IHC Organization IHC Availability Periods IHC Communications IHC Transportation Type 2 Crews Mission Crew Organization Camp Crews National Minimum Standards (Physical Fitness and Training) for Firefighters Hand Crew Standards for National Mobilization MINIMUM CREW STANDARDS FOR NATIONAL MOBILIZATION (table) Crew Types APPENDIX BIA HOTSHOT Crew Contact List RELEASE DATE AUGUST 2013 xvi

18 TABLE OF CONTENTS Chapter 13 Budget Management Introduction Program Budget Annual Appropriations Budget Officer Fiscal Year 2013 Accounting Structure Funded Program Procedures Tracking FBMS Accounts One-Time Funding Purpose of One-Time Funding Requesting One-Time Funding Procedure APPENDIX Wildland Fire Management Appropriation Fiscal Year 2013 Accounting Structure APPENDIX Procedures for One-Time Funding Submission Chapter 14 Emergency Stabilization (ES) and Burned Area Rehabilitation (BAR) Programs Introduction Policy Emergency Stabilization (ES) Burned Area Rehabilitation(BAR) Program Emergency Stabilization (ES) and Burned Area Rehabilitation (BAR) Plans Approvals Funding Time Frames Burned Area Emergency Response (BAER) Coordinators National BAER Coordinator Tri-Regional BAER Coordinator Regional Coordinators Implementation Leader Emergency Stabilization/Burned Area Rehabilitation Process Emergency Stabilization (ES) Cultural Resources Allowable Actions Prohibited Actions Non-Native Invasive Control Allowable Actions Prohibited Actions Revegetation RELEASE DATE AUGUST 2013 xvii

19 TABLE OF CONTENTS Allowable Actions Prohibited Actions Burned Area Rehabilitation (BAR) Allowable Actions Prohibited Actions BAER Teams National Teams Regional/Local Teams Training Process for Requesting Funds Project Funding Process Implementation Phase Program Account Structure Monitoring and Evaluation Responsibility Accomplishment Report Requirements Information Sharing National BAER Coordinator s Responsibility Website Operational Guidelines for Aquatic Invasive Species Noxious Weed Prevention Chapter 15 Rural Fire Assistance/Ready Reserve Programs Policy Program Purpose National Rural Fire Assistance Leads Program Administration Eligibility Criteria Evaluation Criteria Property Acquisition and Management Property Acquisition Property Management Program Funding Procedures for Requesting Funds Program Account Structure Reporting of Annual Program Accomplishments RFA Program Monitoring and Accountability Ready Reserve (RR) Policy Criteria for Rural Fire Departments to Participate Implementation RELEASE DATE AUGUST 2013 xviii

20 TABLE OF CONTENTS Administration Procedures Reporting Requirements Chapter 16 Tribal Contracts/Compacts Introduction Fire Management Administration Guiding Principles Inherently Federal Activities Wildland Fire Management Funding Wildland Fire Preparedness Activity Fire Facility Construction and Maintenance Activity Emergency Suppression Activity Hazard Fuel Reduction Operations (WUI and Non-WUI) Burned Area Rehabilitation Activity Program Operational Standards Minimum Provisions for Contract and Annual Funding Agreements Chapter 17 Reviews and Investigations Introduction Multi-Agency Cooperation Federal Interagency Investigations Policy Reviews Review Types and Requirements Preparedness Reviews After Action Review Fire and Aviation Safety Team Reviews (FAST) Aviation Safety and Technical Assistance Team Review (ASTAT) Large Fire Cost Reviews Individual Fire Review Lessons Learned Review (LLR) Prescribed Fire Review Declared Wildfire Review Investigations Wildland Fire Incident/Accident Types and Definitions Serious Accident Investigation (SAI) Accident Investigation (AI) Entrapment Fire Shelter Deployment Incidents with Potential (Near Miss) and/or Non-Serious Injury RELEASE DATE AUGUST 2013 xix

21 TABLE OF CONTENTS Processes Common to all Wildland Fire Investigations Site Protection Management of Involved Personnel Delegation of Authority (DOA) Critical Incident Stress Management (CISM) SAI 24 and 72 Hour Reports Hour Preliminary Report Hour Expanded Report Serious Accident Investigation (SAI) Process Director, Branch of Wildland Fire Management Agency Administrator (AA) Notification Designating the Investigation Team Lead Serious Accident Investigation Team Composition Team Leader (Core Team Member) Chief Investigator (Core Team Member) Accident Investigation Advisor/Safety Manager (Core Team Member) Interagency Representative Technical Specialists Public Affairs Officer (PAO) Documentation Specialist/Writer Editor SAI Format Executive Summary Narrative Investigation Process Findings/Recommendations Reference Material SAI Report Factual Report (FR) Management Evaluation Report (MER) Accident Investigation (AI) Process Notification Investigation Team Membership Investigation Methodology AI Final Report Accident Investigation Format Executive Summary Narrative Investigation Process Findings/Recommendations Reference Materials Wildland Fire Trespass RELEASE DATE AUGUST 2013 xx

22 TABLE OF CONTENTS Policy Professional Liability Insurance Chapter 18 Suppression Chemicals & Delivery Systems Policy for Use of Fire Chemicals Types of Fire Chemicals Long-Term Retardant Fire Suppressant Foam Wet Water Water Enhancer (Gel) Safety Information Personnel Safety Aerial Application Safety Interagency Policy for Aerial and Ground Delivery of Wildland Fire Chemicals near Waterways and other Avoidance Areas Definition of Waterway Definition of Waterway Buffer Definition of Additional Mapped Avoidance Areas Guidance for Pilots Reporting Requirements of Aerially Delivered Wildland Fire Chemicals into Waterways, Waterway Buffer Areas and Mapped Avoidance Areas Endangered Species Act (ESA) Emergency Consultation Operational Guidelines for Invasive Species RELEASE DATE AUGUST 2013 xxi

23 PROGRAM ORG & RESP. Chapter 1 BIA Wildland Fire and Aviation Program Organization and Responsibilities Introduction This guide is intended to be a program reference guide that documents the standards for operations and fire business practices of the Bureau of Indian Affairs (the Bureau), Wildland Fire Management Program. These standards and practices are based on policy and provide program guidance to ensure safe, consistent, efficient and effective wildland fire and aviation operations. For more information, see Wildland Fire Management Organization The Bureau s Branch of Wildland Fire Management consists of a Director (Branch of Wildland Fire Management), Deputy Director, Assistant Directors for Fire Operations, Fuels, Planning, Training and an Aviation Program Manager. The Organization Chart is shown in Appendix 1-1. Oversight Responsibilities Director, Branch of Wildland Fire Management The Director, Branch of Wildland Fire Management, is also identified by the title Fire Director, Bureau of Indian Affairs (BIA) National Interagency Fire Center (NIFC). Develops policies and standards for firefighting safety and training, and for the prevention, suppression and use of wildland fires on Indian trust lands. Provides guidance to regional directors on the use of wildland fire policy, prescribed fire and fuels management to achieve hazardous fuel reduction and resource management objectives. Integrates wildland fire procedures into natural resource management. Establishes position competencies, standards and minimum qualifications for fire management officers, wildland fire specialists and leaders based on federal interagency standards recommended by the National Wildfire Coordinating Group (NWCG). RELEASE DATE AUGUST

24 PROGRAM ORG & RESP. Implements the interagency Fire Program Analysis (FPA) process and develops procedures and standards for the distribution of program resources. Reviews and evaluates regional Wildland Fire Management (WFM) programs. Represents the Bureau in the coordination of overall wildland fire management activities at NIFC and on intra- and interagency wildland fire committees, groups and working teams. In conjunction with other National Directors, establishes priorities for assignment of critical resources during wildfire emergencies. Serves as the BIA representative on the NWCG, Executive Board. Initiates or participates in Boards of Review concerning actions taken on selected wildland fires. Negotiates agreements and/or modifications of existing national agreements to improve wildland fire management activities on Indian trust lands. Reviews funding requests for hazardous fuel reduction, wildland fire prevention, community assistance, fire facilities and deferred maintenance construction, and rehabilitation requests. Makes determinations on funding levels and recommends approval to the Deputy Bureau Director, Trust Services, based on guiding principles in the Federal Fire Policy, National Fire Plan (NFP), Cohesive Strategy (CS), supporting documents and Secretarial directives. Determines and approves funding levels for severity and emergency stabilization requests. Deputy Director, Branch of Wildland Fire Management Shares all the responsibilities and duties of and serves as ex-officio to the Director, Branch of Wildland Fire Management. Provides oversight and direction to the Branch s Administrative, Budget, Information Technology (IT), and Public Affairs sections. Serves as liaison between the Branch and the Office of the Chief Information Officer-Indian Affairs (OCIO-IA) for all IT support issues. RELEASE DATE AUGUST

25 PROGRAM ORG & RESP. Assistant Director, Fire Operations Oversees administration and coordination of the following Bureau s programs: preparedness, Model 52 Engine, hotshot, emergency firefighter (EFF), rural fire assistance, ready reserve, fire facility construction and deferred maintenance, suppression, severity, emergency stabilization (ES) and burned area rehabilitation (BAR). Develops policies in collaboration with Federal and State cooperators relating to wildland fire operations in Indian country. Provides specialized staff assistance to Departmental and Bureau officials. Represents the Bureau on issues related to interagency fire operations nationally. Associate Director, Fire Use & Fuels Management Responsible for the development and coordination of the Bureau s prescribed fire, fuels management, and fire prevention annual program and recommends the distribution of program funds to Regions. Tracks all fuels management fund distributions and prior year carryover funds. Develops and maintains a national database for fuels management accomplishments in Indian Country. Analyzes hazards and risks in the wildland urban interface using fuel modification or reduction techniques and develops and makes recommendations for Bureau-wide application. Examines and analyzes laws and regulations pertaining to prescribed fire use/fuels management in the wildland urban interface, and works with top level representatives of Tribes, states and rural fire districts to recommend policy which will achieve uniformity. Assistant Director, Planning Responsible for the development and implementation of the Bureau-wide fire planning program. Provides guidance and assistance in administering the technical and operational aspects of the Bureau s fire planning program at the Regional and Agency/Tribal levels for the accurate identification of program funding needs. RELEASE DATE AUGUST

26 PROGRAM ORG & RESP. Serves as Bureau s primary subject matter expert on the following: Fire Planning Reference, Elements, Procedures (Fire PREP), Wildland Fire Management Information (WFMI) System, Weather Information Management System (WIMS), Wildland Fire Decision Support System (WFDSS), Fire Danger Rating System program, Remote Automated Weather Systems (RAWS) and related support systems, and provides user training in those applications. Assistant Director, Training Responsible for developing, coordinating, and implementing wildland fire training programs. Formulates procedures and instructions for conducting training need analysis and usage of training materials. Develops long range plans for what the training and development structure, organization, direction, policies, programs, services and practices will be to accomplish the mission. Is a member of NWCG Operations and Workforce Development Committee and the Interagency Aviation Training Advisory Group on matters concerning job analysis, curriculum needs, and succession planning and development. Aviation Program Manager Recommends and develops policy standards and procedures for the management and operation of the Bureau s wildland fire aviation support activities. Plans and executes analysis of scientific, technological, and economic factors pertaining to aircraft and personnel performance to ensure proper selection to fulfill specific or special use missions. Interprets Federal Aviation Administration (FAA) regulations and departmental policies. Prepares guidance and procedural manuals for Bureau aviation operations. Serves as the Bureau s authority on aviation technical and economic matters, practices, and techniques. Provides consultation and assistance to Office of Justice Services, and Deputy Bureau Director of Trust Services in aircraft operating procedures, pilot and aircraft certification programs, and air operations safety and training programs. RELEASE DATE AUGUST

27 PROGRAM ORG & RESP. Represents the Deputy Bureau Director, Trust Services, in meetings, conferences, and negotiations with other Federal and State agencies and with non-governmental organizations such as aircraft and equipment manufacturers. Serves as the Bureau representative on the Aviation Board of Directors Working Group (ABOD). Plans and executes specialized aviation programs to include aircraft acquisition and safety, training, and maintenance. Assures certification of pilots and aircraft for Bureau use. Manages specialists to provide services in aviation flight activities, safety, training, data analysis, aviation budgets, and program coordination. Participates in or leads safety inspections and evaluations of Region/Agency aviation organizations, standards and procedures and operational activities for compliance with Federal Acquisition Regulations, Office of Safety and Health Administration (OSHA), and other federal regulations, Departmental and agency rules, policies, and required effectiveness and economy. Has full authority to instantly curtail any Bureau aviation activity observed to be in violation of directives or operating in an unsafe manner endangering lives and/or equipment, and presenting an unnecessary hazard to the safety of personnel involved. RELEASE DATE AUGUST

28 PROGRAM ORG & RESP. APPENDIX 1-1 Bureau of Indian Affairs Wildland Fire and Aviation Management Organization Chart Deputy Bureau Director, Trust Services Chief, Division of Forestry Director, Branch of Fire Management Deputy Director Associate Director, Fire Use & Fuels Management Assistant Director, Fire Operations Assistant Director, Planning Assistant Director, Training Aviation Program Manager Assistant Director, Resource Protection RELEASE DATE AUGUST

29 POLICY, LEADERSHIP & GUIDANCE Chapter 2 Policy, Leadership and Guidance Introduction The following policies are endorsed by the departmental Secretaries of Agriculture and Interior to provide consistent fire management practices among federal Wildland Fire Management (WFM) agencies. The statutes which authorize and provide the means for managing wildland fire on or threatened lands under the jurisdiction of the DOI are identified in the Department Manual, Part 620. The information within this chapter describes the general types of wildland fire and respective standards and qualifications. Federal Wildland Fire Policy In 2001, an update of the 1995 Federal Fire Policy was completed and approved by the Secretaries of the Interior and Agriculture. On April 21, 2004 the Secretaries approved the Interagency Strategy for the Implementation of the Federal Wildland Fire Policy. On May 2, 2008, the Wildland Fire Leadership Council (WFLC) issued a memorandum entitled Modification of Federal Wildland Fire Policy Guidance. which modified policy statements made in the 2004 strategy document. As directed by the WFLC, the modifications were tested in a number of field units in the 2008 fire season and then incorporated into this document. In 2009, The National Wildfire Coordinating Group (NWCG) issued a memorandum to the NWCG that: 1) affirms the soundness of the Review and Update of the 1995 Federal Wildland Fire Management Policy (January 2001); 2) which reiterates the policy changes stated in the May 2, 2008 WFLC memorandum entitled Modification of Federal Wildland Fire Policy Guidance; 3) states that the Wildland Fire Decision Support System (WFDSS) will replace existing analysis and decision processes; and 4) confirms that the Interagency Strategy for the Implementation of Federal Wildland Fire Management Policy (June 20, 2003) is replaced by the Guidance for Implementation of Federal Wildland Fire Management Policy (February, 2009). This guidance also calls for the increased dialogue and collaboration between federal agencies and Tribal, local, and State entities as plans are updated and implemented to manage wildfires in order to accomplish resource and protection objectives. RELEASE DATE AUGUST

30 POLICY, LEADERSHIP & GUIDANCE Guiding Principles Firefighter and public safety is the first priority in every fire management activity. The role of wildland fire as an essential ecological process and natural change agent will be incorporated into the planning process. Federal agency land and resource management plans set the objectives for the use and desired future condition of the various public lands. Fire Management Plans, programs, and activities support land and resource management plans and their implementation. Sound risk management is a foundation for all fire management activities. Risks and uncertainties relating to fire management activities must be understood, analyzed, communicated, and managed as they relate to the cost of either doing or not doing an activity. Net gains to the public benefit will be an important component of decisions. Fire management programs and activities are economically viable, based upon values to be protected, costs, and land and resource management objectives. Federal agency administrators are adjusting and reorganizing programs to reduce costs and increase efficiencies. As part of this process, investments in fire management activities must be evaluated against other agency programs in order to effectively accomplish the overall mission, set short and long-term priorities, and clarify management accountability. Fire management plans and activities are based upon the best available science. Knowledge and experience are developed among all federal wildland fire management agencies. An active fire research program combined with interagency collaboration provides the means to make these tools available to all fire managers. Fire Management Plans and activities incorporate public health and environmental quality considerations. Federal, State, Tribal, local, interagency, and international coordination and cooperation are essential. Increasing costs and smaller work forces require that public agencies pool their human resources to successfully deal with the ever-increasing and more complex fire management tasks. RELEASE DATE AUGUST

31 POLICY, LEADERSHIP & GUIDANCE Full collaboration among federal wildland fire management agencies; and between international, State, Tribal, and local governments and private entities result in a mobile fire management work force available for the full range of public needs. Standardization of policies and procedures among federal wildland fire management agencies is an ongoing objective. Consistency of plans and operations provides the fundamental platform upon which federal wildland fire management agencies can cooperate, integrate fire activities across agency boundaries, and provide leadership for cooperation with State, Tribal, and local fire management organizations. Federal Wildland Fire Management Policy Safety Firefighter and public safety is the first priority. All Fire management plans and activities must reflect this commitment. Fire Management and Ecosystem Sustainability The full range of fire management activities will be used to help achieve ecosystem sustainability, including its interrelated ecological, economic, and social components Response to Wildland Fire Fire, as a critical natural process, will be integrated into land and resource management plans, then is applied on a landscape scale, and across agency boundaries as available. Response to wildland fires is based on ecological, social and legal consequences of the fire. The circumstances under which a fire occurs, and the likely consequences on firefighter and public safety and welfare, natural and cultural resources and values to be protected, dictate the appropriate response to a fire. Use of Wildland Fire Wildland fire will be used to protect, maintain, and enhance resources and, as nearly as possible, be allowed to function in its natural ecological role. Use of fire will be based on land and resource management plans. Associated fire management plans and will follow specific prescriptions contained in operational plans. RELEASE DATE AUGUST

32 POLICY, LEADERSHIP & GUIDANCE Emergency Stabilization and Rehabilitation Emergency stabilization and rehabilitation efforts will be undertaken to protect and sustain ecosystems, public health, safety, and to help communities protect infrastructure. Protection Priorities The protection of human life is the single, overriding priority. Setting priorities among protecting human communities and community infrastructure, other property and improvements, and natural and cultural resources will be done based on the values at risk, human, health and safety, and the costs of protection. Once people have been committed to an incident, human resources become the highest value to be protected. Wildland Urban Interface The operational roles of federal agencies as partners in the wildland urban interface are wildland firefighting, hazard fuels reduction, cooperative prevention and education, and technical assistance. Structural fire suppression is the responsibility of Tribal, State, or local governments. Federal agencies may assist with exterior structural protection activities under formal fire protection agreements that specify the mutual responsibilities of the partners, including funding. (Some Federal agencies have full structural protection authority for their facilities on lands they administer and may also enter into formal agreements to assist State and local governments with full structural protection.) Planning Fire management plans must provide for firefighter and public safety; include fire management strategies; tactics; and alternatives. They should address values to be protected and public health issues. They must be consistent with resource management objectives, activities of the area, and environmental laws and regulations. Science Fire management plans and programs will be based on a foundation of sound science. Research will support ongoing efforts to increase our scientific knowledge of biological, physical, and sociological factors. Information needed to support fire management will be developed through an integrated interagency fire science program. Scientific results must be made available to managers in a timely manner and must be used in the development of land management plans, fire management plans, and implementation plans. RELEASE DATE AUGUST

33 POLICY, LEADERSHIP & GUIDANCE Preparedness Interior agencies will ensure their capability to provide safe, cost-effective programs in support of land and resource management plans through appropriate planning, staffing, training, equipment, and management oversight. Suppression Fires are suppressed at minimum cost, considering firefighter and public safety, benefits,and values to be protected, consistent with resource objectives. Prevention Interior agencies will work together and with their partners and other affected groups and individuals to prevent unauthorized ignition of wildland fires. Standardization Interior agencies will use compatible planning processes, funding mechanisms, training and qualification requirements, operational procedures, values-to-be-protected methodologies, and public education programs for all fire management activities. Interagency Cooperation Fire management planning, preparedness, prevention, suppression, fire use, restoration and rehabilitation, monitoring, research, and education will be conducted on an interagency basis with the involvement of cooperators and partners. Communication and Education Interior agencies will enhance knowledge and understanding of wildland fire management policies and practices through internal and external communication and education programs. These programs will be continuously improved through the timely and effective exchange of information among all affected agencies and organizations. RELEASE DATE AUGUST

34 POLICY, LEADERSHIP & GUIDANCE Agency Administrator and Employee Roles Agency administrators will ensure that their employees are trained, certified and made available to participate in the wildland fire program locally, regionally, and nationally as the situation demands. Employees with operational, administrative, or other skills will support the wildland fire program as necessary. Agency administrators are responsible and will be held accountable for making employees available. Evaluation Interior agencies will develop and implement a systematic method of evaluation to determine effectiveness of projects through implementation of the 2001 and subsequent Federal Fire Policy revisions. The evaluation will assure accountability, facilitate resolution of areas of conflict, and identify resource shortages and agency priorities. Guidance for Implementation of the Federal Wildland Fire Management Policy The following guidelines should be used to provide consistent implementation of Federal Wildland Fire Policy. Wildland fire management agencies will use common standards for all aspects of their fire management programs to facilitate effective collaboration among cooperating agencies. Agencies and bureaus will review, update, and develop agreements that clarify the jurisdictional inter-relationships and define the roles and responsibilities among local, State,Tribal and Federal fire protection entities. Responses to wildland fire will be coordinated across levels of government regardless of the jurisdiction at the ignition source. Fire management planning will be interagency in scope and developed on a landscape scale. Wildland fire is a general term describing any non-structure fire that occurs in the wildland environment. Wildland fires are categorized into two distinct types: Wildfires Unplanned ignitions or prescribed fires that are declared wildfires Prescribed Fires Planned ignitions RELEASE DATE AUGUST