DAKOTA PRAIRIE GRASSLANDS

FIRE MANAGEMENT

OPERATIONS GUIDE

2012

TABLE OF CONTENTS

Wildland Fire Management Program Overview

Accountability and Responsibility 4

Range of Potential Behavior 8

Fire Management Units (FMU) 9

Wildland Fire Preparedness

Fire Prevention 10

Closures and Restrictions 11

Fire Training 12

Redcard Committee 13

Position Taskbooks 13

Work Capacity Test 13

Readiness 14

Season Start and Stop Dates 14

Fire Caches 14

Detection 15

Communications 15

Fire Weather 15

Fire Danger 16

Staffing 17

Preparedness 17

Draw Down Levels 20

Aviation 21

Initial Attack

I/A Priorities 23

Fire Incident Response 23

Risk Decision Framework 24

Organizational Needs Assessment 24

Incident Organizations 25

Fire Suppression Restrictions and Limitations 25

Special Concerns 27

Extended Attack and Large Fire Suppression

Thresholds for Large Fire Occurrence 30

Extended Attack 30

Cost Share Agreements 31

North Dakota Incident Mgmt. Assist. Teams 31

WFDSS 31

Incident Management Transition 32

Delegation of Authority 32

BAER 32

Fuels Management

Prescribed Fire 33

Annual Monitoring Requirements 35

Annual Reporting Requirements 35

Coop. Agreements and Interagency Contacts 35

Appendices

Appendix A: Restrictions and Closures 37

Appendix B: Radio Communications 40

Appendix C: Delegation of Authority 47

Appendix D: DPG Pocket Cards 49

WILDLAND FIRE MANAGEMENT PROGRAM OVERVIEW

On the Northern Great Plains, fire hazard can be related to historical processes, climatic patterns, fuel flammability and fuel loads. Characteristics of prairie wildfire are continuous fuels, time lags of one hour or less (fuel moisture changing in response to the environment), and rapid rates of consumption. With cured fuels, high temperatures, low relative humidity and strong winds, fires in grasslands can produce significant flame lengths and high rates of spread. Establishing operational processes for preparedness, initial attack, extended attack and large fire management, and being able to provide those within very short time frames, is the key to safe, efficient, and effective response.

The Dakota Prairie Grasslands Land Management Plan identifies the appropriate management response on all managed lands is to suppress all wildland fires using aggressive initial attack to control a fire. The suppression response will be timely, effective and efficient, and provide for safety first. In cases where a wildland fire exceeds initial attack action levels and/or the thresholds for large fire occurrence specified in the Fire Management Plan are being met, the Wildland Fire Decision Support System (WFDSS)will be used to develop and document appropriate strategies and response.

Accountability and Responsibility

Program Leaders have the authority to direct suppression and hazard fuel reduction programs through oversight, guidance, and evaluation. Leaders should make timely decisions based upon the best available information within the parameters of accepted standards. The Grassland Leadership Team (GLT) embraces firefighter safety as stated in the Federal Wildland and Prescribed Fire Management Policy and Program Review:“Once people are committed to anincident, those resources become the highest values to be protected and receive the highest management considerations”.

Grasslands Supervisor

Provides grassland-wide oversight for all fire management activities, and is responsible for the safety of all personnel involved in those activities including:

  • Establishes expectations for annual preparedness, proficiency, performance and safety.
  • Delegates authority to IC Type 1-5 to determine appropriate suppression response and tactics, and ensure the safety of firefighters.
  • Delegates signature authority to qualified District Rangers (and Acting District Rangers) for all prescribed burns.
  • Retains Wildland Fire Decisions Support System (WFDSS) signature authority where wildland fires will encompass more than one District, or will not exceed $2 million in suppression costs. Delegates WFDSSsignature authority to District Rangers (and Acting District Rangers) within existing Forest Service policy.
  • Responsible for all wildland fires managed under suppression strategy and assigned to an incident management team, within defined cost containment parameters.
  • Responsible for notifying the Regional Forester of any entrapment, serious injury or fatality.

Grasslands Fire Board

The Fire Board is comprised of the District Rangers and the Grasslands Fire Management Officer, with responsibilities for coordinating grassland-wide fire management activities including:

  • Determining an annual program of work
  • Providing fire program direction
  • Providing input for evaluation appraisals for fire personnel.
  • Active participation in preparedness reviews.

Zone Supervisory Ranger

The Medora District Ranger provides supervisory oversight for the Dakota Prairie Grassland’s fire management activities with responsibilities that include:

  • Supervision of the Zone Fire Management Officer
  • Interacting with other District Rangers and the Grasslands FMO, and providing general direction to the program of work for zone fire personnel.
  • Oversight of the evaluation and performance of the zone fire management program.

District Ranger

Provides District oversight for all fire management activities and is directly responsible for the safety of all personnel involved in those activities on their District. Oversight includes active participation in:

  • Communicating leadership expectations in fire management.
  • Ensuring safety compliance.
  • Ensuring that fatigue in wildland fire personnel is appropriately addressed.
  • Identification of appropriate management response to a wildland fire and development of necessary organization to manage the response based on risk assessment.
  • Initiation and organization of the WFDSSplanning and risk assessment process, the definition of objectives in the delegation of authority, the completion of the briefing packet for large fire management, the identification of a Resource Advisor and presentation of this information to the Grassland Supervisor.
  • Briefing Incident Commanders regarding fire suppression objectives, considerations, and constraints on large fires.
  • Approving prescribed burn plans or designating authority for signing approval.
  • Once prescribed burn plans are signed by the District Ranger or designee, provides written approval for any deviation from prescriptive limits.
  • Notifies the Grasslands Supervisor of any entrapment, serious injury or fatality.

Program Staff Officer

Supervises the Grasslands Fire Management Officer and provides general direction on program and fiscal management. In the absence of the Grasslands Supervisor, serves as the designated Acting Grasslands Supervisor and is delegated signature authority for fire suppression as described in the responsibilities of the Grasslands Supervisor.

Grasslands Fire Management Officer

Provides specific program direction regarding fiscal management, allocation and distribution of budget, fire and fuels planning coordination, and leadership and situational awareness in wildland fire suppression, prescribed fire, and non-fire incidents.

Ensures annual adjustments to the Fire Management Plan (FMP) to reflect current conditionsand other significant considerations. Provides oversight and direction in the development of preparedness and prevention programs, the FMP, operation and mobilization guides, preparedness reviews, wildland fire management responses, and training and qualification programs. Collaborates with geographic area counterparts and serves as the primary representative to the region in negotiating financial needs and program activities. Establishes standards, objectives and guidelines for prescribed fire activities and assures coordination with the zone, geographic and national levels as needed. Develops and coordinates fire agreements with fire departments and other local, state, tribal and federal agencies.

Coordinates workforce and equipment needs for management activities, and ensures that suppression actions and hazard fuel reduction activities do not exceed the grasslands capabilities and meets geographic area direction. Coordinates with the Grasslands Supervisor and District Rangers to organize and identify team members needed to complete a WFDSS. Prior to Grassland Supervisor approval, reviews and recommends the appropriate suppression and management response to wildland fires. Serves as the DPG restrictions and closure coordinator, and is responsible for interacting with other protection agencies.

Grasslands Fire Duty Officer

Must possess the necessary knowledge, skills, and abilities to provide oversight to ensure IC’s are qualified and thoroughly briefed on suppression response and tactics, and ensure the IC is made known to assigned firefighters. Monitors incidents to ensure ICs operate within the limits of available resources and the appropriate ICS organization is in place to execute tactical decisions. Provides direction in prioritizing staffing, prepositioning of resources, and ensuring draw down levels are met on a daily basis based on Preparedness Levels.

Per approval by the Grasslands Supervisor, assignment of Grasslands Fire Duty Officer roles and responsibilities is based on work experience and fire knowledge, skills and abilities rather than IQCS qualifications. When conditions warrant the need for a qualified Duty Officer (ICT3), based on high fire activity, high fire intensity levels, and high fire complexity, a qualified Duty Officer will be ordered.

Zone Fire Management Officer and Zone Assistant Fire Management Officer

Responsible for the implementation of all preparedness and suppression activities in the Zone. This includes program management, supervision, training, career enhancement, and target accomplishments, with strict adherence to policy, direction and plans. Coordinates with the District Rangers and Grasslands FMO during initial fire assessment and recommends the appropriate management response to the District Rangers. Certifies Work Capacity Test (WCT) Administrators and establishes protocols for test administration.

Responsible for seasonal hiring, developing work schedules, tracking firefighting resources, flight following, equipment readiness and radio communications. Responsible for conducting After Action Reviews on at least 25% of Type 4 and 5 incidents, and 100% of Type 3 incidents. The ZAFMO works and coordinates with local fire suppression resources on the Little Missouri NG.

Zone Fire Management Officer and Zone Fuels Specialist

Has responsibility for planning, development and implementation of all hazardous fuel treatments, and vegetation management treatments involving prescribed fire in the Zone. This includes fuels program management and target accomplishments,with strict adherence to policy, direction and plans. Coordinates with District Rangers and Grasslands FMO on planning and implementation of treatments and monitoring post-burn fire affects. Works and coordinates with local, tribal, state and federal fire suppression resources to assist with prescribed fire implementation.

Responsible for participating on interdisciplinary teams, as the fire program representative, in developing environment assessments and environmental impact statements that pertain to the use of fire for natural resource management.

Supervisory Engine Foreman and Assistant Supervisory Engine Foreman

Responsible for the daily preparedness of equipment and crew to include safety checks and weather briefings.Carries out daily assignments for prevention, suppression and project work as assigned.

Responsible for the safe operation of the fire engine module while responding to wildland fires. As qualified, may function as IC on Type 4 and 5 incidents. Provides initial size up to Dispatch and ensures all assigned firefighters understand:

  • the incident organization including strategy, tactics and objectives.
  • safety information including LCES, aviation support and communications
  • the effects of fuels, weather and topography on fire behavior

Develops, establishes and implements training specific to tactics, fire weather, fire behavior, line construction, proper equipment use, safety, air operations, and work/rest guidelines. Implements a comprehensive physical training program to ensure the engine module is able to perform required arduous firefighting duties.

Lead Firefighter and Firefighter Types 1 and 2

Firefighters are responsible for protecting themselves and co-workers from injury or accidents. May function as IC on Type 4 and 5 incidents, as qualified, and provide for the safety of those assigned to the incident. Understands that fireline personnel have the responsibility and the right to question fireline assignments when they feel safety is compromised, and understands the tactics and safety mitigation measures incorporated into a particular fire suppression response.

Responsible for learning and understanding the effects of the daily fire weather forecast, previous days wildland fire activity, preparedness levels, and the Rangeland Fire Danger Index, ERC and BI influences on fire behavior. Without exception every firefighter will use the Incident Response Pocket Guide on every incident, assume personal responsibility for managing and meeting work/rest guidelines, and participate in a comprehensive physical training program to ensure the safe execution of their assigned firefighting duties.

Incident Commanders ICT3, ICT4, ICT5

Ensures all personnel assigned to an incident are thoroughly briefed on tactics before suppression actions are taken. Briefings will include organization, communications, current and anticipated fire weather and fire behavior, safety, risk management (including LCES), tactical objectives and assignments, and identification of trigger points to reassess tactical actions. Monitors fatigue and ensures all firefighting personnel receive adequate opportunities for rest. Any operational period exceeding 16 hours in length will be discussed with the Duty Officer and measures initiated to reduce fatigue will be documented.

The Incident Commander will develop and implement a viable and decisive tactical plan based on incident complexity and size-up. Maintains command and control of the incident and the assigned firefighting resources, equipment and aircraft at all times. Re-evaluates tactical actions when initial tactics fail or cannot be safely executed.

Minimizes suppression related impacts to protect natural resources and improvements within the fire area. Includes federal, state, tribal and local cooperators in the incident organization, and encourages them to participate in the development of strategies and tactics to safely and efficiently meet incident objectives. Establishes effective communications with cooperating resources on each incident prior to executing tactical actions.

North Dakota Dispatch Center- Logistics Dispatcher

Works in an interagency capacity in carrying out the tasks involved in the dispatching of personnel, equipment and supplies to manage and support large wildland fires. Responsible for planning and carrying out fire management projects such as fire reports and maintaining IQCS data and records for Dakota Prairie Grasslands personnel.

Local Fire Support (Militia)

Provides assistance and support for operations, logistics, planning, finance, and dispatch communications for local incidents. Operations personnel will meet the standards required by the Wildland Fire Qualifications Subsystem Guide, NWCG 310-1, and the Wildland Fire Qualifications Handbook, FSH 5109.17. Other support personnel will be assigned non-operational duties based on their knowledge, experience and competency. If workload and complexity increases, appropriate resource orders will be placed to fill these positions with qualified personnel.

Range of Potential Behavior

A range of fire behavior can be experienced on the Dakota Prairie Grasslands ranging from low intensity grass fires to high intensity stand replacement fires in pine and juniper stands. Fuel moisture conditions, weather, and topography are major factors in determining fire behavior and intensity. These factors can vary widely from early spring through late fall.

Fire Danger Index Rating / Fire Behavior Potential
Low / Weather and fuel conditions indicate
the probability of fire occurrence is low.
Moderate / Weather and fuel conditions indicate some
potential for fire occurrence. Expect predictable
fire behavior with moderate rates of spread. Flame
lengths 2-4 feet in grass fuels
High / Fires are active. Expect moderate and occasional
high rates of spread. Flame lengths 3-5 feet in
grass fuels
Very High / Fires spread rapidly and show erratic behavior. High
rates of spread with flame lengths 4-8 feet in
grass fuels
Extreme / Potential for large fires exists. Extreme fire behavior
with high rates of spread and flame lengths of 12
feet or greater in grass fuels.

DPG Fire Management Units

The primary purpose of developing Fire Management Units (FMU) in fire management planning is to assist in organizing information in complex landscapes. Fire Management Units divide the landscape into smaller geographic areas to better describe safety considerations, physical, biological and social characteristics, and frame associated planning guidance based on these characteristics.

The Dakota Prairie Grasslands is divided into three Fire Management Units. The Sheyenne FMU encompassesthe tall-grass prairie ecosystem in North Dakota and includes the Sheyenne NG. The Missouri FMU encompasses the mixed-grass prairie ecosystem in north central South Dakota and western North Dakota and includes the Little Missouri, Grand River and Cedar River NG. The Souris FMU encompasses forest/mixed grass prairie in north central North Dakota and includes the Denbigh and Souris Experimental Forests.

PREPAREDNESS

Fire Prevention

Over the past ten years, fire statistics indicate an average of 30 fire occurrences per year, burning 4,100 acres, with an average fire size of 137 acres. Approximately 20% of all fires are less than ¼ acre in size (Class A), 35% are ¼ - 9 acres in size (Class B), 20% are 10-99 acres (Class C), 22% are 100-299 acres (Class D) and 3% are greater than 300 acres in size (Class E, F, G). Lightning accounts for approximately 40% of fire starts, with equipment and debris burning accounting for 60% of fire starts.

The goal of the fire prevention program is to reduce the number of preventable fires in addition to reducing the fire suppression costs and damage to resources associated with human-caused fires. Program components include education, enforcement, and administration. The DPG is an active member of the ND Fire Council Fire Prevention Committee which coordinates interagency fire prevention activities, and works closely with the ND Forest Service with development of community risk assessments and community emergency planning.