Fire Management
Introduction
The Fire Management Toolbox contains resources for managing fire in wilderness. It provides information on agency policy and strategies, wilderness fire planning, fire resource advisor training, research, and other references. For further information please take the online course: Managing Special Provisions: Fire in Wilderness. You can also email Michelle_Reilly@fws.gov for information and updates about the new Wilderness Fire Learning Ecosystem, coming soon!
Historically, fire regimes in the United States were highly variable, both temporally and across the country’s diverse landscapes. Fire regimes were also shaped by Indigenous ignitions and cultural burning practices. In the late 1800s and early 1900s, fire suppression policies intensified leading to increased fuel density and landscape homogeneity. This homogeneity led to a reduction in ecological resilience and potential for large and catastrophic future fires. Climate change has also contributed to an increase in fire activity leading to larger, more severe fires, and more extreme fire behavior. Wilderness and fire managers working in this context will face more complex decisions about fire use in the National Wilderness Preservation System.
Some ecosystems evolved without the presence of landscape-scale fire but may now be at risk due to the spread of non-native annual grasses (such as buffle grass, red brome, and cheatgrass) which are flammable and connect a previous disjunct mosaic of native vegetation. In these instances, wildfire becomes an unnatural process that may threaten the health of the historical fire-free conditions under which these ecosystems evolved.
Basis in the Wilderness Act and Subsequent Legislation
Section 2 (c) of the Wilderness Act
The “Definition of Wilderness” states that, “ An area of wilderness is further defined to mean in this Act and area of undeveloped Federal land retaining its primeval character and influence…which is protected and managed so as to preserve its natural conditions and which (1) generally appears to have been affected primarily by the forces of nature, with the imprint of man's work substantially unnoticeable..."
In certain environments, such as fire-dependent ecosystems, fire can be a powerful natural force. Allowing fires to burn in these wilderness areas may preserve wilderness character. Conversely, suppressing natural fires in fire-dependent wilderness ecosystems is a form of trammeling (a human action that intentionally manipulates Earth’s community of life). The effects of wildfire on wilderness character will vary depending on whether the fire is in an unaltered fire-dependent ecosystem, a human-altered system (e.g. where past fire suppression has significantly changed the natural character), or a fire-independent ecosystem.
Section 4(c) of the Wilderness Act- “Prohibition of Certain Uses”
“There shall be no temporary road, no use of motor vehicles, motorized equipment or motorboats, no landing of aircraft, no other form of mechanical transport, and no structure or installation within any such area. Except as necessary to meet minimum requirements for the administration of the area for the purpose of this Act (including measures required in emergencies involving the health and safety of persons within the area)…”
This is where the Minimum Requirements Analysis stems from. This language in the Act means that:
Emergencies involving the health and safety of persons in the area are considered administration and therefore, prohibited uses may be authorized.
* This also means they are subject to the Minimum Requirement edict. *
Section 4(d)(1) of the Wilderness Act “Special Provisions”"…such measure may be taken as may be necessary in the control of fire...subject to such conditions as the Secretary deems desirable."
When the Act was passed in 1964, agency-ignited prescribed fires were rare occurrences, thus, the original intent of the word "fire" is likely what we now call "wildfire."
Since at least 1978, Congress has seemed to embrace a broader definition of the word "control":
House Report 95-540 accompanied the bill which became P.L. 95-237 (Endangered American Wilderness Act of 1978). It read in part:
"Section 4(d)(1) of the Wilderness Act permits any measures necessary to control fire, insect outbreaks or disease in wilderness areas. This includes the use of mechanized equipment, the building of fire roads, fire towers, fire breaks or fire pre-suppression facilities where necessary, and other techniques for fire control. In short, anything necessary for the protection of the public health or safety is clearly permissible" (emphasis added).
Endangered American Wilderness Act of 1978authorized "whatever appropriate actions are necessary for fire prevention and watershed protection [including] acceptable fire pre-suppression and fire suppression measures and techniques" for two specific wilderness areas. House Report 95-540 makes it clear that, "The uses authorized by such special management language should not be construed by any agency or judicial authority as being precluded in other wilderness areas but should be considered as a direction and reaffirmation of congressional policy" (emphasis added).
In another example, House Report 98-40 accompanied the bill which became PL 98-425 (California Wilderness Act of 1984). It read in part: "Prescribed burning could prove to be an especially significant fire pre-suppression method, particularly in cases where a history of past fire suppression policies have allowed 'unnatural' accumulations of dead or live fuel...to build up to hazardous levels. Controlled burning...may have the advantage of producing fewer long term adverse impacts (and possibly beneficial impacts) on wilderness values than would the construction of roads or similar intrusions...Obviously, such measures should, to the maximum extent practicable, be implemented consistent with maintaining the wilderness character of areas, while at the same time protecting the public health and safety and protecting private property located immediately adjacent to wilderness areas" (emphasis added).
Policy and Guidelines
- Federal Wildland Fire Management Policy and Doctrine (2023)
- Interagency Standards for Fire and Aviation Operations (2025 Red Book)
Note: The BLM, USFWS, and NPS fire programs have been consolidated into the DOI Wildland Fire Service. Policy and guidelines are in development. The DOI Sharepoint is accessible by DOI employees. When the new DOI Wildland Fire Service Policy is available, it will replace the individual agency policies in the other tabs.
- NPS Management Policies 2006
- See Section 6.3.9 Fire Management (specific policy for NPS wilderness)
- See Section 4.5 Fire Management (general policy for all NPS lands)
- NPS Director's Order #41 Wilderness Stewardship (see Section 6.7 Fire Management)
- Director's Order #18: Wildland Fire Management
- Reference Manual #18: Wildland Fire Management
Examples
The overall objective of Suppression and Repair Plans is to mitigate or eliminate environmental resource impacts caused by fire suppression actions and restore the area to as natural an appearance as possible. Repair work in wilderness areas, should be performed either with or under the prescription of a Wilderness Resource Advisor as this work is site and impact dependent. “Wilderness Character” is considered a protected resource, and agencies are directed to minimize all signs of management in wilderness areas post-fire. Repairs should be conducted with the preservation of wilderness character in mind (natural, undeveloped, untrammeled, outstanding opportunities for solitude or a primitive and unconfined type of recreation, and other features of value).
Before taking any action, discussion is needed with the appropriate personnel (Subject Matter Experts and those with decision making authority such as Incident Commanders and Line Officers).
Suppression repair work is to be completed before the fire is declared out. Activities and use of Wildland Fire Suppression Funds (WFSU) that extend after control of the fire must be approved in advance as outlined by Agency Policies.
FS
Interagency READ Cohort
The READ Cohort is a community of people interested in all aspects of Resource Advising on wildland fire and all-hazard incidents. It is grassroots, informal, unofficial, ongoing, nationwide, interagency, and interactive. It is open to anyone interested in “Resource Advising” in the broadest sense. It helps members anticipate impacts of wildland fire or natural disasters suppression or management actions on natural, cultural, social, and Wilderness resources with a focus on how to minimize adverse impacts, rehabilitate, and restore resources when impacted. This includes, but is not limited to: READ, REAF, Lead READ, ARCH, THSP, and other agency-specific positions.
Resource Advisor (READ) Information
Pre-fire Preparation
The work of a Resource Advisor starts before the fire. On a home unit, the resource advisor may participate in pre-fire planning to ensure fire management plans consider wilderness character and regulations. Wilderness READs can prepare for a fire assignment by learning the roles and tasks to ensure success.
READ Reporting
Resource Advisor (READ) reports can be used as living documents for briefing incoming READS to an incident. They can also be final documents produced at the end of a fire to summarize the Resource advisors’ actions and recommendations as a summary guide for the home unit after management of the fire is given back to the unit.
Typically, these reports will cover a detailed incident summary, significant impacts and events, lessons learned, fire progression data, suppression and repair recommendations, and other considerations and recommendations.
National Wildlife Coordinating Group
Incursions in Wilderness fires, such as chainsaw use, dozer operations, and helicopters, are common occurrences to protect public and firefighter safety. Documentation of these incursions is critical for reporting and monitoring of Wilderness Character. Various regions and units may have different formats for upward reporting. The READ may assist the agency administrator in preparing MRAFs or checklists and filing correspondence.