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• This document is contained within the Fire
  Management Toolbox on Wilderness.net. Since other
  related resources found in this toolbox may be of
  interest, you can visit this toolbox by visiting
  the following URL http//www.wilderness.net/index
  .cfm?fusetoolboxessecfire. All toolboxes are
  products of the Arthur Carhart National
  Wilderness Training Center.

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Wilderness Considerations for Fire Resource
Advisors
Rocky Mountain Region Wilderness Managers
Winter Meeting January 21-24, 2003
Wilderness Fire Resource Advisor Training 2007
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Objectives

1. Become familiar with wilderness law and policy
   and the role of fire management in wilderness .
2. Understand the wilderness resource and how
   decisions are made related to fire management in
   wilderness.
3. Examine the wilderness challenges for the Fire
   Resource Advisor task.
4. Provide tools to be used in wilderness fire
   management.

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The Wilderness Act of 1964 P.L. 88-577

• After 8 years of debate in Congress
• 66 different rewrites of the bill
• 18 public hearings that generated over 6,000
  pages of testimony

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Signed by President Johnson on September 3, 1964
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The Wilderness Act

• Establishes a National Wilderness Preservation
  System made up of federal lands.
• Identifies a process for areas to be added
  through subsequent legislation.
• Provides overall definition of what wilderness
  is.
• Provides general direction and identifies
  responsibility for management of wilderness.
• Identifies special provisions for non-conforming
  uses

For more information on The Wilderness Act of
1964 visit http//www.wilderness.net/
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Currently there are 702 areas containing
approximately 107 million acres
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National Wilderness Preservation System -
Percentage by Agency
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19.8
33.2
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The Wilderness Act

• Title
• Section 1 - short title
• Section 2 - policy and definition
• Section 3 - extent of system
• Section 4 - use of wilderness areas
• Section 5 - state and private lands
• Section 6 - gifts and contributions
• Section 7 - annual reports

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The Wilderness Act Purpose of Wilderness Section
2 (a)
it is hereby declared to be the policy of the
Congress to secure for the American people of
present and future generations the benefits of an
enduring resource of wilderness.
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Benefits of an Enduring ResourceSocial,
Biophysical, Cultural
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Definition of WildernessSection 2(c)

• man is a visitor
• retaining its primeval character and
  influence
• without permanent habitation
• managed to preserve natural conditions

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Definition of WildernessSection 2(c)

• affected primarily by the forces of nature
• mans work substantially unnoticeable
• outstanding opportunities for solitude or
  primitive recreation

Photo by Stephen Peel
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Wilderness Stewardship means

• Manage for ecological health and integrity
• Provide opportunities for a wilderness experience
• Minimize human caused impacts
• Provide education and information about the
  wilderness resource, values, and benefits

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Wilderness Management Direction Section 2 (a)

• ... shall be administered in such a manner as
  will leave them unimpaired for future use and
  enjoyment as wilderness
• provide for the protection of these areas, the
  preservation of their wilderness character.

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Wilderness Management Agency Responsibility
Section 4 (b)

• each agency shall be responsible for
  preserving the wilderness character of the area
  and shall so administer such area for such other
  purposes for which it may have been established
  as also to preserve its wilderness character.
• The managing agencies must preserve wilderness
  character.
• It is the over-riding criteria for all decisions,
  including those involving fire management.

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The Four Statutory Qualities of Wilderness
Character

• Undeveloped
• Untrammeled
• Natural
• Outstanding opportunities for solitude or a
  primitive and unconfined type of recreation

• A National Framework for Monitoring Wilderness
  Character, 2006
• http//www.wilderness.net/index.cfm?fuseWC

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Four Statutory Qualities of Wilderness
Characterfor Fire Management

• Undeveloped
• Untrammeled
• Natural
• Outstanding opportunities for solitude or a
  primitive and unconfined type of recreation

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Untrammeled UnhinderedNot being subject to
human controls and manipulations that hamper the
free play of natural forces.
-Howard Zahniser Principal author of The
Wilderness Act
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FOUR STATUTORY QUALITIES OF WILDERNESS CHARACTER

• Untrammeled

Wilderness is generally unhindered and free from
intentional modern human control or manipulation
Threats to this setting Suppression and
prescribed fire
Wilderness setting
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EXAMPLES OF MANIPULATION TO RESTORE NATURAL
CONDITIONS IN WILDERNESS
Reducing fuels to restore natural fire regimes
and fire effects
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FOUR STATUTORY QUALITIES OF WILDERNESS CHARACTER

• Natural

Wilderness ecological systems are substantially
free from the unintentional effects of modern
civilization
Threats to this setting Suppression and
suppression activities
Wilderness setting
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Fire Control vs. Fire Management
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Fire and Wilderness
This used to be called a disaster.
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Wilderness Fire Damage or Natural Event?

• Catastrophic Fire
• Stand Replacing Fire
• Ground Fire
• High Intensity
• Low Intensity

A natural part of the ecological process and
wilderness
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Wilderness Natural Appearing or Wild ?

• Long-term fire suppression is an example of
  large-scale manipulation of natural conditions.
• Fire use creates, for some visitors, a less
  appealing and less natural appearing landscape

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Fire and Wilderness Natural role
The fire and the effects of the fire
Erosion-sedimentation
Smoke-air quality
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The Wilderness Act Agency Responsibility
Section 4 (d)

• such measures may be taken as may be necessary
  in the control of fire subject to such
  conditions as the Secretary deems desirable.
• The managing agencies have discretion for how
  fire in wilderness is managed
• The National Fire Policy and agency fire and
  wilderness management policy describe
  implementation

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The Wilderness ActAgency Responsibility Section
4 (c)

• no temporary road
• no use of motor vehicles, motorized equipment or
  motorboats
• no landing of aircraft
• no form of mechanical transport
• no structure or installation

EXCEPT
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The Wilderness ActAgency Responsibility Section
4 (c)

• except as necessary to meet the minimum
  requirements for the administration of the area
  for the purpose of this Act
• The minimum requirements and minimum tool
  provision of the Act.

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Determining the Minimum Requirement

• The minimum requirement analysis is a two step
  process

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Determining the Minimum Requirement

• The minimum requirement analysis is a two step
  process

Step 1 Is administrative action needed?

• Do you really need to do something?
• Could another strategy avoid the need for
  unnecessary effects to wilderness?

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Determining the Minimum Tool

• Step 2 What is the minimum necessary management
  action?
• If it is necessary to take action
• what is the minimum necessary tool or method that
  will have the least impact on wilderness
  resources and values?

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Wilderness Fire ManagementDetermining the
Minimum Requirement

• 1) Determining if any action is necessary
• 2) Selecting the method, tool, or tactic which
  represents the minimum necessary administrative
  action.

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Determining the Minimum Requirement

• The minimum requirement analysis is a two step
  process

The Minimum Requirements Decision
Guide http//www.wilderness.net/mrdg/
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Wilderness Fire ManagementDetermining the
Minimum Requirement for Fire Management

• A lengthy analysis is not always possible or
  desirable in fire emergency situations.
• The Minimum Requirements Decision Guide (MRDG) is
  not designed for use in emergency situations

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Wilderness Fire ManagementDetermining the
Minimum Requirement

1. Incorporate wilderness management objectives and
   the minimum requirements decision process into
   programmatic fire management planning
2. Develop GO/NO GO checklists and decision trees
   that will aid in the emergency decision making
   situations that arise.
3. Make use of the proper authority (who in the
   agency can make the decision).
4. Document the rationale and the decision to track
   the process and improve future decision making.

Fire Management Toolbox at http//www.wilderness.
net/toolboxes/
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Wilderness ManagementDetermining the Minimum
Requirement

• Example - Method of transport

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Preferences for Limiting ImpactsLong term
impacts vs. short term disturbances

• Aircraft use (if necessary)
• Preferred
• Helicopter flights
• Helicopter landings and/or sling loads in natural
  openings
• Least acceptable
• New constructed helispots

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Wilderness ManagementDetermining the Minimum
Requirement

• Example - Suppression activities

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Preferences for Limiting ImpactsLong term
impacts vs. short term disturbances

• Suppression activities (if necessary)
• Preferred
• Natural fuel breaks
• Cold trailing
• Burnouts and backfires
• Wetlines and pumps
• Least acceptable
• Constructed fireline

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Wilderness ManagementDetermining the Minimum
Requirement

• Example - Spike and coyote camps

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Determining the Minimum Requirement Long term
impacts vs. short term disturbances

• Example - Restoration

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Wilderness Fire ManagementDetermining the
Minimum Requirement
Example - Restoration
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Wilderness ManagementDetermining the Minimum
Requirement
Example - Restoration
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The Minimum Tool vs. the Minimum RequirementWhat
really matters?
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Other Concerns for Wilderness Fire Management
Subdivisions on the Wilderness boundary
Threats from Natural Events Challenges for Fire
Use
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Subsequent Wilderness LegislationEndangered
American Wilderness Act of 1978

• Added 17 new wilderness areas, 1.3 million
  acres.
• These were areas that had been originally
  excluded because they were within sight and
  sound of cities.
• Congress recognized value of urban wilderness

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Wilderness Fire Management Information and
Education
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Wilderness and Fire

• The effects of fire in wilderness should be
  considered neither good nor bad.

• In fire dependent ecosystems, fire is a
  critically important part of the natural process.

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Wilderness and Fire

• Unnecessary, negative impacts from suppression
  are not part of the natural condition.
• Always ask, is this action really necessary?
• Manage fire in wilderness using only the minimum
  necessary actions, tools, and methods.

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Use information and education to

• Explain why the use of MIST are needed based on
  wilderness resource issues explain the reasons
  why it matters based on actual effects (The
  Authority of the Resource)
• MIST Most Intelligent Sensible Tactics
• Capitalize on a teachable moment for
  wilderness
• Provide feasible alternatives to meet both
  wilderness and fire goals

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Remember that the essential principle of fire
management is always the top priority in
wilderness too Do not compromise firefighter or
public safety
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Wilderness Law and Policy - Key Points

• The National Wilderness Preservation System was
  established in response to a concern over growing
  population and development.
• The diversity of the system creates challenges to
  fire management because of size, shape and fuel
  types.
• Subsequent legislation provides specific
  direction that needs to be considered along with
  the 1964 Wilderness Act.
• Sections of the 1964 Wilderness Act and agency
  policy apply to fire management and the resource
  advisor role.

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• Wilderness Resource Advisor Tips
• Know your role with the IMT, Agency
  Administrator, and others.
• Be prepared to stand up and present your case for
  wilderness.
• Understand the effects of fire and fire
  management activities in wilderness.
• Allow and assist fire managers to do what they
  should, not what they could.
• Be a credible wilderness advocate, not a zealot.

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Thousands of tired, nerve-shaken, over-civilized
people are beginning to find out that going to
the mountains is going home that wilderness is a
necessity that mountain parks and reservations
are useful not only as fountains of timber and
irrigating rivers, but as fountains of life.
-John Muir
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Agency Policy Fire Management in Wilderness
 
Fire Management Toolbox at http//www.wilderness.
net/toolboxes/
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BLM Policy 8560.35 A

• Fire suppression measures and techniques must be
  used which achieve the wilderness management
  objectives with the minimum adverse impact on the
  wilderness resource.
• Methods and equipment which least alter the
  landscape or disturb the land surface are best.

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FWS Policy 6 RM 8.8b C.

• While an aggressive approach to wildfire control
  on certain wilderness areas may be in order, the
  methods utilized should be the minimum tool.

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Forest Service Policy 2320

• Conduct all fire management activities within
  wilderness in a manner compatible with overall
  wilderness management objectives.
• Give preference to using methods and
  equipment that cause the least

1. Alteration of the wilderness landscape.
2. Disturbance of the land surface.
3. Disturbance to visitor solitude.
4. Reduction of visibility during periods of visitor
   use.
5. Adverse effect on other air quality related
   values.

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Forest Service Policy 2320

• Locate fire camps, helispots, and other temporary
  facilities or improvements outside of the
  wilderness boundary whenever feasible.
• Rehabilitate disturbed areas caused by
  suppression activities within wilderness to as
  natural an appearance as possible.

 
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NPS General Mgmt. Policy

• Fire management or suppression activities
  conducted within wilderness, including the
  categories of designated, recommended, potential,
  proposed, and eligible areas, will be consistent
  with the minimum requirement concept identified
  in Chapter 6 (of the General Management Policies)
  and Directors Order 41 Wilderness Preservation
  and Management.

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NPS Policy - Directors Order 41

• The park's fire management and wilderness
  management plans must identify and reconcile the
  natural and historic roles of fire in the
  wilderness, and will provide a prescription for
  response, if any, to natural and human-caused
  wildlfires.

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Agency PolicyApplication to Fire

• Whenever possible, scrutinize the use of motor
  vehicles, motorized equipment, mechanical
  transport, and aircraft in support of suppression
  activities.

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Agency Policy Application to Fire

• Whenever possible, scrutinize the use of motor
  vehicles, motorized equipment, mechanical
  transport and aircraft in support of suppression
  activities.
• Activities that may have longer-term impacts,
  such as retardant drops, line construction, and
  dozer lines should be minimized.

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Federal Wildland Fire Policy Application to
Wilderness
Fire Management Toolbox at http//www.wilderness.
net/toolboxes/
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Continuing to suppress natural fires, causes a
significant alteration to natural conditions.
Federal Wildland Fire Policy Application to
Wilderness
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Suppression actions can have a significant impact
to the resource.
Federal Wildland Fire Policy Application to
Wilderness
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Federal Wildland Fire Policy Application to
Wilderness

• Fire Management Plans (FMP)
• Utilize the Wilderness Checklist for Fire
• Management Plans
• Provide wilderness input to help address the
  opportunities for natural fire in wilderness.
• Ensure that wilderness law and policy is included
  in planning and implementation.

Fire Management Toolbox at http//www.wilderness.
net/toolboxes/
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The Authority of the Resource

• The Authority of the Resource is a communication
  technique that allows the message to be delivered
  as the right thing to do for the wilderness
  resource.

• The communication is not focused on law and
  policy as the primary reason for strategy or
  tactics.

Education Planning Toolbox at
http//www.wilderness.net/toolboxes/
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Example WRA task Need to locate the helispot in
the opening ¼ mile west of the timbered ridge top
location shown on the map

• ART technique
• Why? Because taking advantage of the natural
  opening will eliminate the need to fell 20 trees.
  Its the minimum necessary action to insure that
  when we leave here there will be no lasting
  impacts from our activities.

• Non-ART technique
• Why? Because Im the wilderness resource
  advisor and I have a delegation of authority that
  empowers me to make these decisions.

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Use of the Authority of the Resource technique
allows the Resource Advisor to

• Explain why the use of MIST are needed based on
  wilderness resource issues explain the reasons
  why it matters based on actual effects
• MIST Most Intelligent Sensible Tactics
• Capitalize on a teachable moment for
  wilderness
• Provide feasible alternatives to meet both
  wilderness and fire goals

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Resource of wilderness
Physical
Emotional
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Values
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Examples of Subsequent Legislation Designating
Additional Wilderness Areas

• Central Idaho Wilderness Act of 1980
• Endangered American Wilderness Act of 1978

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Central Idaho Wilderness Act of 1980

• Established the Frank Church River of No
  Return Wilderness.
• Provided specific direction (in addition to
  direction in 1964 Act) for managing that area,
  for example

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Allowed continued operation of airstrips
Recognized private inholdings
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The Wilderness Act Special Provisions Section 4
(d)

• Activities that would not normally be allowed
  in Wilderness but are allowed under certain
  circumstances, for instance

• Water conservation works, power projects,
  transmission lines, other facilities needed in
  the public interest
• Grazing of livestock
• Commercial services (outfitter guides)
• Administrative sites

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Wilderness ManagementDetermining the Minimum
Requirement

• Special Provisions