**Chapter 18**

**Prescribed Fire**

**Introduction**

-   

-   

-   

-   The *Interagency Prescribed Fire Planning and Implementation
    Procedures Reference Guide (IA RX Fire Guide)* was signed by the
    National Fire and Aviation Executive Board (NFAEB) on September
    1, 2006. The IA RX Fire guide provides consistent interagency
    policy, establishes common terms and definitions, and identifies
    planning and implementation processes for prescribed fire. These
    procedures meet all policy requirements described in the *2003
    Interagency Strategy* *for* *the Implementation of Federal*
    *Wildland Fire* *Management Policy*. The 2006 guide provides unified
    direction and guidance for prescribed fire planning and
    implementation for the Department of the Interior's Bureau of Indian
    Affairs (BIA), Bureau of Land Management (BLM), the National Park
    Service (NPS), the United States Fish and Wildlife Service (USFWS)
    and the United States Department of Agriculture Forest Service (USDA
    FS).

The guide can be obtained electronically at the National Fire and
Aviation Executive Boards (NFAEB) website:
<http://www.nifc.gov/fire_policy/> and at the National Interagency Fuels
Management Website: <http://www.nifc.gov/fuels/index.html>. Access the
'Direction and Guidance' link.

-   
-   
-   
-   
-   
-   
-   
-   
-   

```{=html}
<!-- -->
```
-   

```{=html}
<!-- -->
```
-   
-   
-   
-   
-   
-   
-   
-   
-   
-   
-   
-   
-   

The IA RX Fire Guide describes what is minimally acceptable for
prescribed fire planning and implementation. All personnel involved in
the prescribed fire planning and implementation process must ensure that
specific agency additional standards and or supplemental guidance are
followed.

**Purpose**

The purpose of this guide is to provide consistent interagency policy,
establish common terms and definitions, and identify planning and
implementation processes for prescribed fire.

The guide describes what is minimally acceptable for prescribed fire
planning and implementation. Agencies may choose to provide more
restrictive standards and policy direction, but must adhere to these
minimums.

**Scope**

This guide provides policy and direction to implement existing federal
policy and has been developed with tribal, state, county, and local
cooperators in mind. While some of these guidelines will not fit all
non-federal cooperators, the intent is to include everyone by
establishing a planning and implementation guide that might result in
that outcome.

**Prescribed Fire Program Goals**

Interagency Prescribed Fire Program goals are to:

-   Provide for firefighter and public safety as the first priority.

-   Ensure that risk management is incorporated into all prescribed fire
    planning and implementation.

-   Use prescribed fire in a safe, carefully planned, and cost-efficient
    manner.

-   Reduce wildfire risk to communities, municipal watersheds and other
    values and to benefit, protect, maintain, sustain, and enhance
    natural and cultural resources.

-   Utilize prescribed fire to restore natural ecological processes and
    functions, and to achieve land management objectives.

**Authorities**

All use of prescribed fire will be supported by a Land/Resource
Management Plan (L/RMP) and/or Fire Management Plan (FMP). Prescribed
fire projects can only be implemented through an approved Prescribed
Fire Plan. Specific authorities exist for each agency to utilize
prescribed fire (See Appendix A of the *Interagency Prescribed Fire
Planning and Implementation Procedures Reference Guide)*. All project
decisions to use prescribed fire are subject to the agency's analysis,
documentation, and disclosure requirements for complying with the
National Environmental Policy Act (NEPA).

During prescribed fire planning and operations, all federal agencies
will accept each other's standards for qualifications. The minimum
qualifications standard is theNational Wildland Fire Coordinating Group
(NWCG) *Wildland and Prescribed Fire Qualifications System Guide, 2000*
(PMS 310-1). State, local cooperators and contractors working on federal
agency prescribed fires must meet the NWCG PMS 310-1 standards unless
local agreements specify otherwise.

The main reference glossary for this guide is the NWCG glossary, which
is updated periodically: <http://www.nwcg.gov/>.

This guide is not intended to address interagency business rules.
Reference individual agency's business rules for direction.

**Prescribed Fire Planning Process**

Common planning documents to ensure quality prescribed fire plans
include:

-   Land/Resource Management Plan (L/RMP)

-   Overall direction is provided to the Wildland Fire Management
    Program by L/RMP. These plans serve as the document to initiate,
    analyze, and provide the basis for using prescribed fire to meet
    resource management objectives.

**Fire Management Plan (FMP)**

+--------------------------------+------------------+-----------------+
|                                |                  |                 |
+--------------------------------+------------------+-----------------+
| -                              | -                |                 |
| -                              |                  |                 |
| -                              |                  |                 |
| -                              |                  |                 |
+--------------------------------+------------------+-----------------+
|                                |                  |                 |
+--------------------------------+------------------+-----------------+
|                                |                  |                 |
+--------------------------------+------------------+-----------------+
|                                |                  |                 |
+--------------------------------+------------------+-----------------+
|                                |                  |                 |
+--------------------------------+------------------+-----------------+
|                                |                  |                 |
+--------------------------------+------------------+-----------------+
|                                |                  |                 |
+--------------------------------+------------------+-----------------+
|                                |                  |                 |
+--------------------------------+------------------+-----------------+
|                                |                  |                 |
+--------------------------------+------------------+-----------------+
|                                |                  |                 |
+--------------------------------+------------------+-----------------+
|                                |                  |                 |
+--------------------------------+------------------+-----------------+
|                                |                  |                 |
+--------------------------------+------------------+-----------------+
|                                |                  |                 |
+--------------------------------+------------------+-----------------+
|                                |                  |                 |
+--------------------------------+------------------+-----------------+
|                                |                  |                 |
+--------------------------------+------------------+-----------------+
|                                |                  |                 |
+--------------------------------+------------------+-----------------+
|                                |                  |                 |
+--------------------------------+------------------+-----------------+
|                                |                  |                 |
+--------------------------------+------------------+-----------------+
|                                |                  |                 |
+--------------------------------+------------------+-----------------+
|                                |                  |                 |
+--------------------------------+------------------+-----------------+
|                                |                  |                 |
+--------------------------------+------------------+-----------------+
|                                |                  |                 |
+--------------------------------+------------------+-----------------+

-   
-   

```{=html}
<!-- -->
```
-   
-   
-   
-   

```{=html}
<!-- -->
```
-   
-   
-   
-   
-   
-   
-   
-   
-   
-   
-   
-   
-   
-   
-   
-   
-   
-   
-   
-   
-   

```{=html}
<!-- -->
```
-   
-   
-   
-   
-   
-   
-   

```{=html}
<!-- -->
```
-   

-   

-   

-   

-   

-   

-   

-   

-   

-   

-   

-   

-   

-   

-   

-   

-   

-   

-   

-   

-   

-   

-   

-   

-   

-   

-   

-   -   

    -   

    -   

    -   ~~T~~

```{=html}
<!-- -->
```
-   
-   
-   
-   
-   
-   
-   
-   
-   
-   
-   

```{=html}
<!-- -->
```
-   
-   
-   
-   
-   
-   

All burnable acres will be covered by a Fire Management Plan (FMP). The
FMP is the cornerstone plan for managing a Wildland Fire Management
Program and should flow directly from the L/RMP. FMPs may be developed
for a Fire Planning Unit (FPU) that crosses jurisdictional boundaries.
Where the Wildland Fire Management Program crosses jurisdictional
boundaries, or where program coordination is essential, the FMP will
require interagency coordination. Most FMPs are anticipated to fall into
this category.

**National Environmental Policy Act (NEPA)**

Resource and prescribed fire objectives for specific prescribed fire
projects are derived from the NEPA analysis. The entire prescribed fire
project area must be analyzed under NEPA. NEPA documents that identify
and analyze the effects of using or not using prescribed fire treatment
projects may include Environmental Impact Statements (EIS),
Environmental Assessments (EA), and Categorical Exclusion (CE).

Other authorities that may be utilized to guide analysis and
determination of NEPA compliance are the Healthy Forest Restoration Act
(HFRA), the Healthy Forest Initiative (HFI), and the Tribal Forest
Protection Act (TFPA).

Prescribed fire planning and related NEPA analysis should always occur
at the largest possible spatial and temporal scales.

**Implementation Organization and Qualifications**

During prescribed fire planning and operations, all federal agencies
will accept each other's standards for qualifications. The minimum
qualifications standard is the National Wildland Fire Coordinating Group
(NWCG) *Wildland and Prescribed Fire Qualifications System Guide, 2000
(PMS 310-1)*. State, local cooperators, and contractors working on
federal agency prescribed fires must meet the NWCG PMS 310-1 standards
unless local agreements specify otherwise. No less than the organization
described in the approved Prescribed Fire Plan may be used for
implementation. The complexity of each prescribed fire or phase of
fire(s) determines the organization(s) needed to safely achieve the
objectives specified in the Prescribed Fire Plan.

**Minimum Supervisory Qualifications Determined By Prescribed Fire
Complexity:**

  ----------------- ----------------- ------------------ -----------------
                    **Complexity**                       

  **Position**      **High**          **Moderate-low**   **Low**

  RXM1              Optional          Optional           Optional

  RXM2              Not Allowed       Optional           Optional

  RXB1              Required          Optional           Optional

  RXB2              Not Allowed       Required           Optional

  RXB3              Not Allowed       Not Allowed        Required

  FIRB              Optional          Optional           Optional
  ----------------- ----------------- ------------------ -----------------

**Holding Specialist**

Holding functions will be managed by personnel qualified at the
appropriate ICS wildland fire operations position as required by
complexity, assigned resources and operational span of control. For some
projects, there may be no holding requirements or the holding duties are
assumed by the Burn Boss.

High, Moderate, and Low complexity prescribed fires are determined
through the required NWCG *Prescribed Fire Complexity Rating System
Guide*.

**Prescribed Fire Burn Boss Type 3 (RXB3)**

Adoption of the RXB3 position is up to each agency. Non-federal RXB3s
must meet the qualifications as listed in the table below unless local
agreements specify otherwise.

An RXB3 will only be allowed to implement low complexity prescribed
fires where the possibility of spread or spotting outside the project
area is negligible to non-existent; multiple fuel models are not
involved; and aerial operations are not involved.

**R**equirements for Prescribed Fire Burn Boss Type 3

+-----------------------------------+-----------------------------------+
| Training                          | Required: S-290 Intermediate      |
|                                   | Wildland Fire Behavior            |
|                                   |                                   |
|                                   | Suggested: S-234 Ignition         |
|                                   | Operations                        |
+-----------------------------------+-----------------------------------+
| Prerequisite Experience           | Incident Commander, Type 5        |
|                                   |                                   |
|                                   | OR                                |
|                                   |                                   |
|                                   | Advanced Firefighter/Squad Boss   |
|                                   |                                   |
|                                   | AND                               |
|                                   |                                   |
|                                   | Satisfactory position performance |
|                                   | as a Prescribed Fire Burn Boss    |
|                                   | Type 3                            |
+-----------------------------------+-----------------------------------+
| Physical Fitness                  | Moderate                          |
+-----------------------------------+-----------------------------------+
| Other Position Assignments that   | Prescribed Fire Burn Boss Type 2  |
| will Maintain Currency            |                                   |
|                                   | Prescribed Fire Burn Boss Type 1  |
|                                   |                                   |
|                                   | Fire Use Manager                  |
|                                   |                                   |
|                                   | Prescribed Fire Manager Type 1    |
|                                   |                                   |
|                                   | Prescribed Fire Manager Type 2    |
+-----------------------------------+-----------------------------------+

**Responsibilities**

Prior to prescribed fire implementation, thorough planning and review
processes must be conducted. All prescribed fire actions must be
developed from resource/fire management objectives carried forward from
FMP's and L/RMP's. A specific implementation plan for each prescribed
fire must be completed, reviewed, and approved before ignition can
begin.

The agency administrator has final approval authority for all Prescribed
Fire Plans, unless special circumstances warrant higher review and
concurrence (such as may occur during higher Preparedness Levels or for
extremely large, complex projects). Although the agency administrator
has final approval authority for the Prescribed Fire Plan and the agency
administrator Pre-Ignition Approval Checklist, the Prescribed Fire Burn
Boss has the responsibility to make the on-site tactical \"GO/NO-GO\"
decision. The Prescribed Fire Burn Boss ensures that all prescription,
staffing, equipment, and other plan specifications are met before,
during, and after the prescribed fire.

Every Prescribed Fire Plan must receive a technical review. The
Technical Reviewer and Prescribed Fire Plan Preparer must be qualified
or have been previously qualified as a Prescribed Fire Burn Boss at an
experience level equal to or higher than the complexity being reviewed.
Either the Prescribed Fire Plan Preparer or Technical Reviewer must be
currently qualified.

Only a RXB1 can review plans at high complexity. An RXB2 can review
plans of moderate to low complexity. An RXB3 is not allowed to function
as a Prescribed Fire Plan Preparer (see Chapter 3, section C of the
*Interagency Prescribed Fire Planning and Implementation Procedures
Reference Guide*) or Technical Reviewer.

Agency or individual unit policy may dictate additional reviews.
Interagency Prescribed Fire Plans require approval from all appropriate
agency administrators and a technical review. Listed below are the
prescribed fire and implementation position roles and responsibilities.

**Agency Administrator**

For the purposes of this document, the agency administrator is defined
as the Line Officer (or designee) of the agency or jurisdiction that has
responsibility for the prescribed fire. These usually include the: NPS
Park Superintendent, BIA Agency Superintendent, USFS Forest Supervisor,
BLM District/Field Office Manager, FWS Project Leader, State Forest
Officer, and/or Fire Chief.

The agency administrator is responsible to:

-   Approve Prescribed Fire Plans. When approving a plan, understand the
    risks associated with it. Ensure that the plan has been reviewed and
    recommended for approval by the Technical Reviewer who was not the
    primary preparer of the plan.

-   Ensure that only trained and qualified personnel participate in the
    implementation portion of the prescribed fire.

-   Ensure that projects are monitored, evaluated, and documented in the
    project file.

-   Sign, date, and provide an expiration date for the approval to burn
    on the agency administrator Pre-Ignition Approval Checklist
    (Reference Burn Plan Template, Appendix B of the *Interagency
    Prescribed Fire Planning and Implementation Procedures Reference
    Guide*).

-   Understand and approve the Complexity Analysis (PMS 424 January
    2004).

-   Ensure that all prescribed fires are conducted in accordance with
    the approved implementation plan and established standards and
    guidelines.

-   Ensure that periodic reviews and inspections of the Prescribed Fire
    Program are completed.

-   Determine if and when the agency administrator is to be notified
    that contingency actions are being taken.

-   Report all wildfires resulting from prescribed fires through the
    chain of command.

-   Declare an escaped prescribed fire a wildfire (if responsibility is
    assigned in the plan).

-   Ensure that escaped prescribed fires are reviewed according to
    established guidelines.

**Technical Reviewer**

The Technical Reviewer is responsible for reviewing each Prescribed Fire
Plan element for content as well as evaluating the risk and Complexity
Analysis to ensure that the stated goals and objectives can be safely
and successfully achieved when properly implemented. The Technical
Reviewer shall be qualified or previously qualified as a Burn Boss at or
above the level of project complexity. At a minimum, NWCG qualifications
will be accepted. The Technical Reviewer should have local knowledge of
the area, experience burning in similar fuel types, and/or conduct an
on-site review. The Technical Reviewer must be someone other than the
primary preparer of the plan. An off-unit technical review is encouraged
to provide an additional independent perspective. It is acceptable for
other specialists to review certain portions of the plan however; a
primary Technical Reviewer must be designated as technical review
signatory. For example, a fire behavior analyst may review the fire
behavior calculations; the aviation manager may review the air
operations plan; and/or a resource specialist may review impacts to
their resource of interests. It is recommended that at least once every
year, each unit should send a moderate or high complexity Prescribed
Fire Plan off-unit for technical review. The Technical Reviewer is
responsible to:

-   Ensure that Prescribed Fire Plans meet agency policy and direction.

-   Ensure that the Complexity Analysis accurately represents the
    project, so the agency administrator understands the identified
    risks and the mitigating measures enacted. This may require on-site
    review in Wildland Urban Interface (WUI) or high complexity
    situations by the Technical Reviewer.

-   Check the prescription parameters against the fuel types to ensure
    that the project as planned has a reasonable chance of meeting the
    resource management objectives.

-   Ensure that the fire behavior calculations and/or prescription
    parameters are appropriate and within the acceptable range.

-   Ensure that the ignition, holding and contingency plans are
    consistent with the predicted fire behavior.

-   Complete and sign the Technical Review Checklist (See Burn Plan
    Template, Appendix B of the *Interagency Prescribed Fire Planning
    and Implementation Procedures Reference Guide*) and the Prescribed
    Fire Plan signature page.

**Prescribed Fire Plan Preparer**

For the purpose of this document, the Prescribed Fire Plan Preparer is
defined as the individual responsible for the preparation of the
Prescribed Fire Plan. Several people may be involved in the preparation
of the Prescribed Fire Plan, but the Prescribed Fire Plan Preparer is
responsible for the final plan content. The primary preparer of the
Prescribed Fire Plan will sign the signature page. The preparer is
responsible to:

-   Prepare the Prescribed Fire Plan in accordance with this guide's
    policy and direction.

-   Coordinate with the resource management and/or technical specialists
    to ensure that the plan meets management and operational objectives.

-   Interact with the Technical Reviewer to ensure that all plan
    elements are adequately addressed.

-   Complete and sign the Complexity Analysis.

**Prescribed Fire Burn Boss (RXB1/RXB2/RXB3)**

The Prescribed Fire Burn Boss is responsible to the agency
administrator, Prescribed Fire Manager, or FMO/local fire management
organization for implementing the Prescribed Fire Plan. The Prescribed
Fire Burn Boss is responsible to:

-   Review the Prescribed Fire Plan prior to implementation and ensure
    all required elements and objectives are addressed.

-   Inspect the burn unit to validate Prescribed Fire Plan elements
    including areas of special concern as well ensuring that
    holding/contingency plans adequately address expected fire behavior
    outside the unit(s).

-   Obtain current weather and smoke management forecasts, updates, and
    special advisories from a meteorologist.

-   Maintain communication with the agency administrator, Prescribed
    Fire Manager, or FMO/local fire management organization.

-   Ensure that the agency administrator Pre-Ignition Approval Checklist
    is valid (See Burn Plan Template, Appendix B of the *Interagency
    Prescribed Fire Planning and Implementation Procedures Reference
    Guide*)

-   Take to the field those portions of the Prescribed Fire Plan
    necessary for completing the briefing and safe project
    implementation.

-   Complete and sign the Prescribed Fire GO/NO-GO Checklist (See Burn
    Plan Template, Appendix B of the *Interagency Prescribed Fire
    Planning and Implementation Procedures Reference Guide*).

-   Ensure availability of any contingency resources and management of
    those resources if deployed.

-   Ensure that all operations are conducted in a safe manner and in
    accordance with the approved plan and established standards and
    guidelines.

-   Verify qualifications of all assigned personnel. Conduct the
    personnel /safety briefing to ensure a safe operation.

-   Conduct the test fire and document the results.

-   Supervise assigned personnel and direct the ignition, holding and
    monitoring operations. The Prescribed Fire Burn Boss will be
    responsible for implementation including mop-up and patrol unless
    otherwise assigned to other qualified personnel.

-   Declare the prescribed fire out unless the responsibility for it is
    formally passed to another Prescribed Fire Burn Boss, Prescribed
    Fire Manager or the local fire management organization.

-   Determine when the prescribed fire is not within prescription
    parameters (both short and long term) or is not meeting objectives.

-   Declare an escaped prescribed fire a wildfire (if responsibility is
    assigned in the plan).

-   Manage the incident or oversee the transition to another Incident
    Commander if an escape occurs.

-   Ensure that reports are completed.

-   Coordinate with adjacent landowners, cooperators and permittees as
    designated in the Prescribed Fire Plan.

**Fire Management Officer (FMO)/ Fire Program Manager**

The Fire Management Officer (FMO)/Fire Program Manager is responsible to
the agency administrator for planning, implementing and monitoring of
the Prescribed Fire Program in accordance with policy and direction. The
FMO/Fire Program Manager is responsible to:

-   Ensure compliance with national, regional, tribal and local fire
    policy and direction, as well as applicable state and local laws.

-   Ensure that Preparedness Level Restrictions are adhered to. At
    National Preparedness Levels Four and Five, prescribed fire
    implementation is restricted. See the *National Interagency
    Mobilization Guide* for details.

-   Ensure that both the Prescribed Fire Plan Preparer and the Technical
    Reviewer are qualified or qualified less currency at the level of
    complexity or higher.

-   Ensure that trained and qualified personnel are available to
    participate in the Prescribed Fire Program.

-   Assign the Prescribed Fire Burn Boss.

-   Ensure a Prescribed Fire Plan with written approval exists for each
    prescribed fire project.

-   Review the Prescribed Fire Plan to assess the impact of the project
    on the unit's workload; include the project in the unit's Annual
    Work Plan; assess the unit's ability to implement the project; and
    assess the need for additional implementation resources.

-   Ensure that all prescribed fires are conducted in accordance with
    the approved Prescribed Fire Plan and established standards and
    guidelines.

-   Declare an escaped prescribed fire a wildfire (if responsibility is
    assigned in the plan).

-   Act as liaison/coordinator to the agency administrator, Prescribed
    Fire Manager and/or Prescribed Fire Burn Boss, local dispatch
    office, other units, other agencies, air quality authorities, news
    media, transportation agencies, and safety officials.

-   Ensure that projects are reported through the local office and
    comply with national reporting guidelines.

-   Ensure that fuels management projects and interagency support
    actions are reported through the proper reporting systems.

-   Ensure that periodic reviews and inspections of the Prescribed Fire
    Program are completed.

-   Update agency administrator on the progress of the prescribed fire
    (as necessary).

-   Ensure that projects are monitored, evaluated and documented as a
    part of the project file.

**Prescribed Fire Manager (RXM1/RXM2)**

The Prescribed Fire Manager is responsible for implementing and
coordinating assigned prescribed fire activities. A Prescribed Fire
Manager may be assigned during periods when multiple simultaneous
prescribed fires are being conducted; when multiple prescribed fires
will be conducted within a short time frame; or where there is complex
interagency involvement. The Prescribed Fire Manager is responsible to:

-   Review Prescribed Fire Plans prior to implementation.

-   Monitor all prescribed fire operations.

```{=html}
<!-- -->
```
-   
-   
-   
-   
-   

```{=html}
<!-- -->
```
-   

-   

-   

-   

-   

-   

-   

-   

-   

-   

-   

-   

-   

-   

-   

-   

-   

-   

-   

-   

-   

-   

-   

-   

-   

-   

-   Ensure that all operations are conducted in a safe manner and in
    accordance with the approved plan(s) and established standards and
    guidelines.

```{=html}
<!-- -->
```
-   Act as coordinator/liaison between the burn organization(s) and
    other offices, agencies, air quality authorities, news media,
    transportation agencies, safety officials, and interested public.

-   Declare an escaped prescribed fire a wildfire (if responsibility is
    assigned in the plan).

-   Obtain and interpret long-term weather information.

-   Brief the Burn Bosses and direct operational assignments according
    to policies, priorities, and standards.

-   Set priorities for allocation of resources.

-   Ensure the completion of all required documentation including the
    evaluation and documentation of accomplishments, fire behavior and
    fire effects, operation procedures, and cost summaries.

**Firing Boss (FIRB)**

The Firing Boss reports to the Prescribed Fire Burn Boss and is
responsible for supervising and directing ground and/or aerial ignition
operations according to established standards in the Prescribed Fire
Plan. The Firing Boss is responsible to:

-   Review the Prescribed Fire Plan and the burn unit prior to
    implementation.

-   Brief personnel on project objectives and ignition operations.

-   Complete the test fire according to the ignition plan at the
    direction of the Prescribed Fire Burn Boss.

-   Conduct ignition operations in a safe manner according to the
    ignition plan.

-   Identify the impacts of ignition on the control and desired fire
    effects.

-   Coordinate ignition operations with the Holding Specialist.

**Holding Specialist**

The supervisory position in charge of the holding forces reports to the
Prescribed Fire Burn Boss. There is no specific NWCG approved prescribed
fire position for this function. This position is assigned by name and
title using PMS 310-1 mnemonics. Holding functions will be managed by
personnel qualified at the appropriate Incident Command System (ICS)
wildland fire operations standard and as required by the prescribed fire
complexity, assigned resources, and operational span of control. The
Holding Specialist is responsible to:

-   Review the Prescribed Fire Plan and the burn unit prior to
    implementation.

-   Brief holding personnel on project objectives and holding
    operations.

-   Conduct holding operations in a safe manner according to the holding
    plan.

-   Coordinate holding operations with the Firing Boss.

-   Confine the fire to a predetermined area, mop up, and patrol.

-   Maintain communication with Burn Boss on holding progress and/or
    problems.

-   For some prescribed fires, there may be no holding requirements or
    the holding duties are assumed by the Prescribed Fire Burn Boss.

**Fire Effects Monitor (FEMO)**

The Fire Effects Monitor (FEMO) is responsible for collecting the onsite
weather, fire behavior, and fire effects information needed to assess
whether the fire is achieving established resource management
objectives. The FEMO is responsible to:

-   Review the monitoring plan prior to implementation.

-   Monitor, obtain, and record weather data.

-   Monitor and record fire behavior data throughout the burn
    operations.

-   Recon the burn unit/area assigned.

-   Plot the burn area and perimeter on a map.

-   Monitor and record smoke management information.

-   Monitor first order fire effects.

-   Provide monitoring summary of the fire.

-   Provide fire behavior and weather information to burn personnel as
    appropriate.

**Helitorch Manager (HTMG)**

The Helitorch Manager is responsible to manage the helitorch operation,
supervise the mixing operation, and provide technical assistance to the
Prescribed Fire Burn Boss/Ignition Specialist. The HTMG may also serve
as Helicopter Manager and Helitorch Manager or Helicopter Parking Tender
(but not both).

**Plastic Sphere Dispenser Operator (PLDO)**

The Plastic Sphere Dispenser Operator (PLDO) is responsible for the
preparation, operation, maintenance, and care of the dispenser. The PLDO
reports to the Ignition Specialist.

**Helitorch Mixmaster (HTMM)**

The Helitorch Mixmaster (HTMM) is responsible for supervising the
mixing/filling operations. The HTMM may also serve as Helitorch Manager
or Helicopter Manager.

**Resource Specialist or Resource Advisor (READ)**

The Resource Specialist/READ is responsible for ensuring the prescribed
fire project is planned and implemented in a manner supporting the
unit's resource management goals and objectives. The Resource
Specialist/READ is responsible to the agency administrator. The Resource
Specialist/READ is responsible to:

-   Ensure resource management representation in the preparation of the
    Prescribed Fire Plan.

-   Ensure a review of Prescribed Fire Plans is conducted before each
    plan is submitted for approval.

-   Evaluate the prescribed fire project in terms of meeting objectives.

-   Provide resource information and direction to the Prescribed Fire
    Burn Boss.

-   Present information at briefings on resources, priorities, and
    issues of concern.

-   Coordinate with adjacent landowners, cooperators and permittees as
    designated in the Prescribed Fire plan or by the Burn Boss.

**Amendments**

There may be a need to make amendments to the Prescribed Fire Plan.
These are changes to the Prescribed Fire Plan that require an agency
administrator signature. When changes are necessary, plans must be
amended to identify the affected sections; the reason for the change(s);
and have the changes clearly identified. For amendments, the same
standards for Prescribed Fire Plan preparation, review, and approval
apply.

Common reasons for amending the Prescribed Fire Plan may include:

-   Changes to objectives.

-   Changes to complexity.

-   Changes to fire behavior prescription parameters.

-   Changes to project area boundaries resulting in either an increase
    or decrease in area.

-   Reduction in resource capabilities identified as required in the
    plan.

-   Major changes to ignition methods including ground ignition to
    aerial ignition; aerial ignition to hand ignition; hand drip torch
    ignition to use of terra torch ignition (includes ATV mounted
    ignition devices); and/or hand ignition from roadways to hand
    ignition from boats or other watercraft.

To avoid having to amend the Prescribed Fire Plan, flexibility should be
built into the plan that will allow for a range of adjustments during
the prescribed fire. When building flexibility, the range of identified
options must remain within the scope of the Complexity Analysis.
Examples of flexibility that can be built into a prescribed fire plan:

-   The Prescribed Fire Plan may state that on burn day and subsequent
    days of the prescribed fire, a mix of the number and kinds of hand
    crews and engines may be modified as long as stated production
    capabilities are not compromised.

-   As the prescribed fire progresses from ignition to holding to mop up
    and patrol, specified capabilities and/or types of resources may be
    adjusted. If these flexibilities are built into the Prescribed Fire
    Plan, there must be a clear statement as to the work capability
    requirements of the resources at the various stages of the
    prescribed fire.

-   Minor changes in burn unit boundaries to facilitate holding and/or
    ignition, as long as the area in question has been in the NEPA
    document, requires no change in holding or ignition resources and is
    within the project boundaries.

-   Additional resources may be assigned to the project without amending
    the burn plan if the addition of these resources does not change the
    complexity of the burn or require additional supervisory positions.
    These changes must be documented in the daily briefing.

    **Safety**

    -   
    -   

The Federal Wildland Fire Policy states that firefighter and public
safety is first priority. Prescribed Fire Plans and activities must
reflect this commitment. Every person involved in a prescribed fire is
responsible for identifying safety issues and concerns. It is the
responsibility of each individual participating in prescribed fire
activities to notify immediate supervisor of any possible
misunderstanding of assigned tasks or safety concerns related to the
assignment.

NWCG established Work/Rest Guidelines and span of control apply equally
to wildland and prescribed fire operations. The management of crew,
overhead, and support personnel rest to assure safe, productive fire
operations is the responsibility of all supervisory fire management
personnel (refer to *NWCG Interagency Incident Business Management
Handbook, PMS 902, NFES 3139*).

Exposure to smoke during prescribed fire operations can be a significant
safety concern. Research has shown that exposure to smoke on prescribed
fires, especially in holding and ignition positions, often exceeds that
on wildfire. At a minimum, smoke exposure must be addressed in the Job
Hazard Analysis (JHA) and smoke management element. Public safety
impacts from smoke should be addressed in the Smoke Management and Air
Quality Element as well as the Public, Personnel Safety, and Medical
Element.

Transportation and use of any product containing chemicals (drip torch
fuel, aviation gas, sphere dispensers, fusees, fuel thickener, etc.)
must be in compliance with the *Occupational Safety and Health
Administration's (OSHA) Hazard Communication Standard (29 CFR
1910.1200)* and *Department of Transportation Regulations (49 CFR Part
171)*, and agency specific guidance. Material Safety Data Sheets (MSDS)
for hazardous materials used on projects should be consulted in
developing the JHA.

The SAFENET form and process is designed for reporting and correcting
unsafe situations and is applicable to prescribed fire applications.

The risk management process identified in the *NWCG Incident Response
Pocket Guide (IRPG, PMS 410-1)* helps ensure that critical factors and
risks associated with prescribed fire operations are considered during
decision making. This process should be applied to all prescribed fire
planning and operations.

Consider using a Safety Officer on high complexity prescribed fires and
others where the complexity analysis shows the need or indicates a
higher than normal hazard.

A qualified Safety Officer is defined as a currently qualified Safety
Officer, at any Type level (Types 1, 2 or 3), as defined by the NWCG,
*Wildland and Prescribed Fire Qualification System Guide (PMS 310-1)*.

**Prescribed Fire Plan**

The Prescribed Fire Plan is the site-specific implementation document.
It is a legal document that provides the agency administrator the
information needed to approve the plan and the Prescribed Fire Burn Boss
with all the information needed to implement the prescribed fire.
Prescribed fire projects must be implemented in compliance with the
written plan.

Prescribed Fire Plans will vary in their degree of detail. The size and
complexity of the prescribed fire project will determine the level of
detail required. The Prescribed Fire Plan Template (Appendix B of the
*Interagency Prescribed Fire Planning and Implementation Procedures
Reference Guide*) must be utilized. Each element must be addressed and
then assembled in the sequence identified in the template. Should an
element not apply to a specific prescribed fire plan, not applicable
(N/A) may be utilized. Programmatic plans for multiple units under like
conditions may be appropriate. Additional information may be added as
appendices.

If an interagency mixed ownership Prescribed Fire Plan is being
prepared, the development of all appropriate elements within the plan
will be conducted in an interagency setting. Interagency agreements and
Memorandums of Understanding (MOU) and/or private land owner agreements
are required to implement prescribed fire on multiple ownerships.

Listed below are the planning explanations of each individual element
required as part of a complete Prescribed Fire Plan and implementation
policy related to the element.

**Prescribed Fire Plan Elements**

**1. Signature Page**

The following information must be included on the signature page:

-   Administrative unit name.

-   Prescribed Fire Unit (burn unit)/Project name.

-   At a minimum, three dated signatures are required: a Prescribed Fire
    Plan Preparer, a Technical Reviewer, and an agency administrator.
    Additional signatures may be included as required by the individual
    unit.

-   Final determined complexity rating(s).

-   If the plan needs to be amended, the signed and dated amendments
    must be attached to the Prescribed Fire Plan (see Chapter 4 of the
    *Interagency Prescribed Fire Planning and Implementation Procedures
    Reference Guide*).

**2. GO/NO-GO Checklists**

-   **Agency Administrator Pre-Ignition Approval Checklist**

> The Agency Administrator's Pre-Ignition Approval Checklist (Burn Plan
> Template, Appendix B of the *Interagency Prescribed Fire Planning and
> Implementation Procedures Reference Guide*) is required to be
> completed. The Agency Administrator's Pre-Ignition Approval Checklist
> evaluates whether compliance requirements, Prescribed Fire Plan's
> elements, and internal and external notification(s) have been
> completed and expresses the agency administrator's intent to implement
> the Prescribed Fire Plan. The checklist establishes the expiration
> date for the implementation of the Prescribed Fire Plan. If ignition
> of the prescribed fire is not initiated prior to expiration date
> determined by the agency administrator, a new approval is required. An
> 'acting' agency administrator may sign the Agency Administrator
> Pre-Ignition Approval Checklist if authority to do so has been
> delegated. If the Prescribed Fire Plan is amended, a review and
> re-validation of the Agency Administrator Pre-Ignition Approval
> Checklist would be required and included in the Project File.

-   **Prescribed Fire GO/NO-GO Checklist**

> Prior to all ignition operations, the assigned Prescribed Fire Burn
> Boss will complete and sign the Prescribed Fire GO/NO-GO Checklist
> (Burn Plan Template, Appendix B of the *Interagency Prescribed Fire
> Planning and Implementation Procedures Reference Guide*). This
> checklist is a minimum standard and agencies may elect to add
> questions and/or approval signatures. For each day of active ignition
> on a prescribed fire, a separate daily GO/NO-GO Checklist is required.

**3. Complexity Analysis**

Risk management is a foundation for all prescribed fire activities.
Risks and uncertainties relating to prescribed fire activities must be
understood, analyzed, communicated, and managed as they relate to the
cost of either doing or not doing an activity. At a minimum, those risks
from the Complexity Analysis that are rated high and can not be
mitigated will be identified with a discussion of the risks associated
in the Summary Complexity Rating Rationale. This discussion will also be
included in the Complexity Analysis Summary page (Burn Plan Template,
Appendix B of the *Interagency Prescribed Fire Planning and
Implementation Procedures Reference Guide*).

The Prescribed Fire Complexity Rating must be completed utilizing the
*Prescribed Fire Complexity Rating System Guide, NWCG, January, 2004*
(or current version). The purpose of the complexity rating process is to
provide:

-   Assignment of a complexity rating of high, moderate, or low to the
    prescribed fire.

-   Management and implementation personnel a relative ranking as to the
    overall complexity of a specific prescribed fire project.

-   A process that can be used to identify Prescribed Fire Plan elements
    or characteristics that may pose special problems or concerns.

-   A process that identifies mitigation activities needed to reduce the
    risk/hazard to the implementation personnel and public as well as
    mitigating potential resource damage.

-   A preliminary rating will be completed early in the Prescribed Fire
    Plan development stage. This will identify potential concerns that
    may be mitigated during the plan preparation process. Once the
    Prescribed Fire Plan is near completion, the final complexity rating
    is made. The final complexity rating will be used as a basis for
    determining prescribed fire organization, Prescribed Fire Burn Boss
    level, and mitigation measures.

The Summary Complexity Rating Rationale will clearly justify the summary
rating for prescribed fire organization and Prescribed Fire Burn Boss
level. It must also identify those risks from the Complexity Analysis
that are rated high and can not be mitigated and will provide a
discussion of the risks associated. The Complexity Analysis must be
signed by the Prescribed Fire Plan Preparer and the agency administrator
and attached as an appendix to the Prescribed Fire Plan. The Complexity
Analysis Summary will be attached to the Prescribed Fire Plan following
the GO/NO-GO Checklists.

Separate prescriptions and/or burn organizations for different stages of
implementation may result in multiple Complexity Analyses and ratings.
For example, a plan may have separate prescriptions for spring and fall
burning which may require different organizations and constitute the
need for additional complexity analyses.

If a prescribed fire complexity changes which results in different
Prescribed Fire Burn Boss qualifications, a separate complexity analysis
is required. For example, for certain prescribed fires conducted over
time, progressive or sequential actions may reduce complexity,
organization, and Prescribed Fire Burn Boss qualifications (e.g. a large
scale, high complexity prescribed fire has been black-lined, portions
burned and operations suspended for a period of time then resumed to
continue or finish the prescribed fire). In this case, a separate
Complexity Analysis will be developed to reflect the reduced complexity
rating and will be included in the appendix of the Prescribed Fire Plan.

**4. Description of the Prescribed Fire Area**

**Physical Description**

This section of the plan will describe the physical features of the
prescribed fire area.

-   Location - Narrative description of the location of the prescribed
    fire project including a legal description, UTM and/or
    latitude/longitude (decimal degrees; NAD83 preferred), county, and
    state.

-   Size - Area, in acres, of the prescribed fire project with a
    breakdown by prescribed fire unit and/or ownership if applicable.

-   Topography - Identify the upper and lower range of elevation,
    slope(s) --maximum/minimum and average, and aspect(s) of the
    prescribed fire project.

-   Project Boundary - The project boundary defines that area where fire
    will be ignited and may be allowed to burn (some agencies previously
    called this Maximum Management Area or Allowable Area). Describe the
    physical, natural and/or human made boundaries (including multiple
    units) of the prescribed fire project. This will be done through
    maps and may include narratives. The entire prescribed fire project
    area must be analyzed under NEPA.

**Vegetation/Fuels Description**

This is a description of current vegetation and fuels in the project
area and should discuss history including past environmental effects or
land management practices and how they have impacted the fuel
characteristics. Identify any reference material used.

-   Describe the structure and composition of the vegetation type(s) and
    fuel characteristics. This description may include natural or
    activity fuels, total fuel load (both live and dead) in tons/acre,
    dead fuel load by time-lag size classes, live fuel load
    (woody/herbaceous), fuel bed depth, and vertical and horizontal
    arrangement within the project boundary.

-   Describe the percent of the unit composed of each vegetative type
    and the corresponding fuel model(s).

-   Identify conditions (fuels, slope, and aspect) in and adjacent to
    boundaries that may be a potential threat for escaped fire.

```{=html}
<!-- -->
```
-   Identify any abiotic conditions like airshed, climate, soils, etc.
    as appropriate.

**Description of Unique Features and Resources**

List and discuss special features, hazards, regulations, issues,
constraints, etc. Examples may include: fences to protect, power poles,
historical/cultural sites, threatened and endangered species or habitat,
etc.

**Maps**

Maps will be developed and included in the Prescribed Fire Plan. At a
minimum, the plan will include a vicinity and project map. The number of
maps, map size and scale, legend and level of detail should be
appropriate for the complexity of the project. All maps will include the
standard mapping elements: title, name of preparer(s), date, north
arrow, scale, and legend.

-   Vicinity Map - Shows prominent features including roads, streams,
    water sources, towns, structures, and the proximity of the burn
    unit(s) to these features. Transportation route(s) will be
    identified. Map scale will be such that the burn units can be
    located on the ground and in sufficient detail to guide
    implementation.

-   Project Map(s) - The project map(s) identify features in sufficient
    detail to guide and assist in operational implementation of the
    prescribed fire. Topographic, vegetative, or aerial photo maps
    should be used as the base map. ICS map display symbols, identified
    in the *Fireline Handbook PMS 410-1* will be used as appropriate.
    Examples of features that should be included on the project map(s)
    are: project boundary, individual unit boundaries, ownership,
    fireline locations, natural barriers, fuel model locations, proposed
    ignition patterns and sequence, critical holding points, hazards,
    safety zones, escape routes, helispots, areas of special concern,
    smoke management issues (predicted plume dispersion, sensitive
    receptors, etc), escaped fire contingency actions (primary and
    secondary control lines, trigger points, etc), water sources,
    location of treatment monitoring plots, etc., if these are
    significant in communicating project implementation.

**5. Goals and Objectives**

A short summary description will be developed that identifies the
purpose of the prescribed fire and the resource management goals from
the supporting L/RMPs and/or NEPA documents. The summary will identify
desired future conditions of the prescribed fire project. This should be
consistent with the appropriate land management goals. Include a
discussion of future Fire Regime Condition Class (FRCC) post-treatment
conditions if applicable.

Describe in clear, concise statements the specific measurable resource
and fire objectives for this prescribed fire. Objectives will be
measurable and quantifiable so prescription elements can be developed to
meet those objectives and the success of the project can be determined
following implementation.

**6. Funding**

Identify the funding source(s) and estimated cost(s) of the prescribed
fire. Itemize by phase if desired.

**7. Prescription**

Prescription is defined as the measurable criteria that define a range
of conditions during which a prescribed fire may be ignited and held as
a prescribed fire.

The plan prescription will describe a range of low to high limits for
the environmental (weather, topography, fuels, etc.) and fire behavior
(flame lengths, rate of spread, spotting distance, etc.) parameters
required to meet Prescribed Fire Plan objectives while meeting smoke
management and control objectives. Parameters are quantitative variables
expressed as a range that result in acceptable fire behavior and smoke
management.

The range of prescribed fire behavior characteristics (outputs such as:
flame lengths, rates of spread, scorch heights, mortality, spotting,
etc.) identified in the plan will help determine the acceptable
combination of environmental parameters (inputs such as: weather,
topography and fuels) under which the prescribed fire can be conducted.
In many cases, burning under the extremes of all prescriptive parameters
would not meet or possibly exceed the desired prescribed fire behavior
characteristics and are therefore out of prescription. The Prescribed
Fire Burn Boss must ensure that the prescriptive parameters and fire
behavior characteristics as identified in the Prescribed Fire Plan are
not exceeded. Empirical evidence (historical evidence or researched
data) and judgment may be utilized to identify or calibrate
prescriptions. Weaknesses in modeling can be overridden, but must be
justified with empirical evidence and/or verified actual fire behavior.

Separate prescriptions may be needed for multiple fuel model conditions
to address seasonal differences and/or types of ignition (black lining,
aerial ignition, etc). Separate prescriptions may result in multiple
complexity ratings and burn organizations. For example, a separate
prescription is needed for black-lining operations if conditions will be
significantly different from the primary prescription or if the holding
resources differ from those identified for ignition and holding phases.
Separate prescriptions may result in the need to identify multiple
levels of management, organizational structures, implementation
measures, and pre-burn considerations.

Holding and contingency plans must be developed with the consideration
of the predicted fire behavior outside the project boundary(s). Fire
behavior characteristics for fuel models within the maximum spotting
distance and/or adjacent to the project boundaries must be considered
and modeled using worst-case fire behavior predictions. These
predictions will be identified from fire behavior model runs or
empirical evidence of the hottest, driest, and windiest prescription
limits identified in the Prescribed Fire Plan, along with the most
extreme environmental conditions (slope, aspect) identified.

A short fire behavior narrative that summarizes the fire behavior
identified in the prescription and discusses how it will achieve the
desired treatment objectives may be included.

When used, fire behavior calculations must be developed using an
appropriate fire behavior modeling program. Include modeling and/or
empirical evidence documentation as an appendix or in the fire behavior
narrative.

**8. Scheduling**

Identify the general ignition time frame(s) (i.e. time of day, duration
of ignition) or season(s) and note any dates when the project may not be
conducted. For prescribed fires with multiple ignitions or burn days,
list projected duration.

At National Preparedness Levels Four and Five, prescribed fire
implementation is restricted. See *National Interagency Mobilization
Guide* for details.

**9. Pre-burn Considerations**

Describe on and off-site actions and considerations that need to be
conducted prior to implementation. Examples include clearances; line to
be built; preparation of critical holding points; snags to be felled or
protected; equipment to be pre-positioned; special features to be
protected; warning signs to be placed; weather recording; fuels
condition sampling; monitoring needs; responsibility; and timeframes.

Describe any fuel sampling and weather data that may need to be obtained
(See Element 14: Test Fire). This data should be taken at the project
site. If this is not possible, use the closest representative site.

The plan will include a list of organizations (including media) and
individuals that are to be notified prior to ignition, with information
necessary to make the contacts. Reasonable efforts will be made to
notify adjacent land owners (or their agents) and other potentially
impacted publics. Attempts and/or actual notifications will be
documented with date and method and placed in the Project File.

Identify in the burn plan the method and frequency for obtaining weather
and smoke management forecast(s).

Spot weather or local area forecasts are required prior to ignition, on
all ignition days and any days the fire is actively spreading. A copy of
the forecast will be included in the Project File. The Prescribed Fire
Burn Boss or other person in charge of mop-up and patrol will also
obtain and review the spot weather or area forecast to determine if mop
up and patrol resources are adequate.

**10. Briefing**

All assigned personnel must be briefed at the beginning of each
operational period to ensure personnel safety considerations (including
the JHA) and prescribed fire objectives and operations are clearly
defined and understood. Briefing checklists are required to be included
in the Prescribed Fire Plan and will include the following elements:

-   Burn Organization and Assignments

-   Burn Objectives and Prescription

-   Description of the Prescribed Fire Area

-   Expected Weather & Fire Behavior

-   Communications

-   Ignition Plan

-   Holding Plan

-   Contingency Plan and Assignments

-   Wildfire Conversion

-   Safety and Medical Plan

The briefing checklist should list briefing topics only, not re-state
what is listed in the Prescribed Fire Plan for that element.

The Prescribed Fire Burn Boss will ensure that any new personnel
arriving to the prescribed fire receives a briefing prior to assignment.

An Incident Action Plan (IAP) is optional, it is recommended for large
multi-day or high complexity prescribed fires.

If aerial ignition devices will be used, include an Aerial Ignition
Briefing.

**11. Organization & Equipment**

The complexity of each prescribed fire determines the organization
capabilities needed to safely achieve the objectives specified in the
Prescribed Fire Plan. Specify the minimum required implementation
organization to meet the capabilities (line production rates, etc.) by
position, equipment, and the supplies needed for all phases of the
prescribed fire until declared out. At a minimum, a Prescribed Fire Burn
Boss will be assigned to every prescribed fire. Positions that may not
be filled as collateral duty will be identified in the organization
chart of the Prescribed Fire Plan.

Standard ICS fire management principles for span of control and length
of assignments will be adhered to when developing burn implementation
organization(s) and used in managing prescribed fires. On prescribed
fires with large organizations, use the ICS organization and staffing
commensurate with the level of complexity. Consider the use of a
Prescribed Fire Manager in conducting multiple prescribed fires.

Before implementation (all phases) of the prescribed fire, documentation
in the form of an organization chart must be completed. Any changes to
the organization during implementation must be documented. Any changes
that reflect modification of the capabilities, equipment or supplies
will require an amendment. Different organizations may be identified for
different phases of implementation (i.e. holding v. mop-up and patrol,
different ignition operations, different prescriptions).

Multiple prescriptions for one Prescribed Fire Plan are permissible and
in some cases required (Element 7). Multiple prescriptions may require
identifying and developing multiple organizations.

The Prescribed Fire Burn Boss is responsible for implementation
including mop-up and patrol until the responsibility is formally passed
to a Prescribed Fire Burn Boss, Prescribed Fire Manager or the local
fire management organization.

**12. Communication**

Develop communications plan specific to the project's implementation to
address safety and tactical resource management needs. Identify and
assign command, tactical, and air operations frequencies as needed. Also
include any required telephone numbers. Cover under an Incident Action
Plan, if utilized.

**13. Public & Personnel Safety, Medical**

Describe provisions to be made for public and personnel safety. All
personnel who are within the active burn area are required to wear
personal protective equipment. Identify and analyze the safety hazards
unique to the individual prescribed fire project and specify personnel
safety and emergency procedures. Include safety hazards (including smoke
exposure and impacts) and measures taken to reduce those hazards.
Specify emergency medical procedures, evacuation methods, and emergency
facilities to be used. A Job Hazard Analysis (JHA) is required for each
prescribed fire project and will be attached to the Prescribed Fire Plan
as an appendix.

**14. Test Fire**

Provisions for a test fire are required and results must be recorded.
The test fire must be ignited in a representative location and in an
area that can be easily controlled. The purpose of the test fire is to
verify that the prescribed fire behavior characteristics will meet
management objectives and to verify predicted smoke dispersion. In many
applications, analysis of the initial ignitions may provide adequate
test fire results. On multiple-day projects, evaluation of current
active fire behavior, in lieu of a test fire, may provide a comparative
basis for continuing and must be documented. If in doubt however,
initiate a separate test fire and evaluate results.

Prior to ignition of both the test fire and ignition operations, compare
the Prescribed Fire Plan prescription elements, both individually and
collectively, against local area or spot weather forecasts, other
predicted conditions, and the actual conditions onsite (See element 9:
Pre-Burn Considerations) to ensure that predicted fire behavior will
take place and/or weather parameters will not change to the point of the
burn going out of prescription.

**15. Ignition Plan**

Describe planned ignition operations including firing methods, devices,
techniques, sequences, patterns, and ignition staffing for single or
multiple unit operations. Maps showing proposed firing patterns may be
included. If aerial ignition (or other aerial operations) is planned,
cover aviation operations, organization, and safety within the
Prescribed Fire Plan, Aerial Ignition Plan, or in an agency specific
Aviation Operating Plan (Refer to the *Interagency Helicopter Operations
Guide, {NFES #1885}* and the *Interagency Aerial Ignition Guide {NFES
#1080}*for more detailed information on this topic). Multiple
prescriptions and ignition operations (blackline, primary, aerial, etc.)
may require identifying and developing multiple ignition organizations.

**16. Holding Plan**

Describe general procedures to be used for operations to maintain the
fire within the project area and meet project objectives until the fire
is declared out. This may include mop-up and/or patrol procedures.
Describe critical holding points (if any) and mitigation actions.
Critical holding points will be identified on the project map. Describe
minimum capabilities needed for all phases of implementation (see
Element 11: Organization and Equipment). If used, attach or reference
modeling outputs or worksheets (i.e. Fireline Handbook production rates,
BEHAVE, etc.) and/or documented empirical evidence to justify minimum
holding resources required.

Different organizations may be identified for different phases of
implementation (i.e. holding, mop-up and patrol, different ignition
operations, different prescriptions). Multiple prescriptions may require
identifying multiple complexity ratings and developing multiple holding
organizations.

If onsite resources are insufficient to meet the prescribed fire plan
objectives, then the Burn Boss should implement the Contingency Plan or
Wildfire Conversion.

**17. Contingency Plan**

"...If the objectives are not being met the Contingency Plan, a required
component of the Prescribed Fire Burn Plan, is implemented. If the
Contingency Plan is successful at bringing the project back within the
scope of the Prescribed Fire Burn Plan the project continues. If
contingency objectives are not met the prescribed fire is converted to a
wildfire and Extended Attack is undertaken."

*Interagency Strategy for the Implementation of Federal Wildland Fire
Management Policy, June 20, 2003, page 12.*

Contingency planning is intended for more than just a response to an
escaped fire. The contingency plan is the portion of the Prescribed Fire
Plan that considers possible but unlikely events and the contingency
resources and actions needed to mitigate those events.

Contingency planning is the determination of initial actions and
additional resources needed if the prescribed fire is not meeting,
exceeds, or threatens to exceed:

-   Project or unit boundary

-   Objectives

-   Prescription parameters

-   Minimum implementation organization

-   Smoke impacts

-   Other Prescribed Fire Plan elements

The contingency plan will establish trigger points or limits that
indicate when additional holding resources and actions are needed.

Contingency planning includes the additional resources required, and the
maximum acceptable response time for those resources. Resource needs
should be based on fire behavior outputs tied to the worst case fire
behavior scenario (as modeled in Element 7: Prescription). Separate
contingency plans may be necessary and appropriate to address seasonal
differences, types of ignitions or phases of the burn implementation as
described in the prescriptions and ignition and holding plans developed
for the burn.

Verify and document availability of identified contingency resources and
response time on day of implementation. If contingency resources
availability falls below plan levels, actions must be taken to secure
operations until identified contingency resources are replaced.

The same contingency resource can be identified for multiple prescribed
fire projects. When specific contingency resources are identified for
more than one prescribed fire, the local fire management organization(s)
must evaluate and document adequacy of all contingency resources within
the area. This evaluation must consider:

-   Local, current, and predicted fire danger

-   Local and regional wildland fire activities.

Once a contingency resource is committed to a specific wildland fire
action (wildfire, wildland fire use or prescribed fire), it can no
longer be considered a contingency resource for another prescribed fire
project and a suitable replacement contingency resource must be
identified or the ignition halted.

The agency administrator will determine if and when they are to be
notified that contingency actions are being taken.

If the contingency actions are successful at bringing the project back
within the scope of the Prescribed Fire Plan, the project may continue.
If contingency actions are not successful by the end of the next burning
period, then the prescribed fire will be converted to a wildfire.

**18. Wildfire Conversion**

The Prescribed Fire Plan will specify who has the authority to declare a
wildfire. A prescribed fire must be declared a wildfire by those
identified in the plan when that person(s) determines that the
contingency actions have failed or are likely to fail and cannot be
mitigated by the end of the next burning period by on-site holding
forces and any listed contingency resources. In addition, an escaped
prescribed fire must be declared a wildfire when the fire has spread
outside the project boundary, or is likely to do so, and cannot be
contained by the end of the next burning period. A prescribed fire can
be converted to a wildfire for reasons other than an escape.

Describe the actions to be taken when a prescribed fire is declared a
wildfire *(refer to Wildland Fire and Aviation Program Management and
Operations Guide {BIA\--Blue Book} and Interagency Standards for Fire
and Aviation {Red Book})*. Description will include:

-   Wildfire declaration (by whom)

-   IC assignment

-   Notifications: dispatch, agency administrator, adjacent land owners,
    etc.

-   Extended attack actions and opportunities to aid in suppression
    efforts.

-   After a wildfire declaration, an escaped prescribed fire cannot be
    returned to prescribed fire status. A WFSA will define appropriate
    future management actions.

**19. Smoke Management & Air Quality**

Describe how the project will comply with local community, county,
state, tribal, and federal air quality regulations. Identify what
permits, if any, need to be obtained. Identify smoke sensitive areas
including population centers, recreation areas, hospitals, airports,
transportation corridors, schools, non-attainment areas, Class I air
sheds, and restricted areas that may be impacted. Include modeling
outputs and mitigation strategies and techniques to reduce the impacts
of smoke production, if required by State Implementation Plans (SIPs)
and/or State or local regulations. Reference the *Smoke Management Guide
for Prescribed and Wildland Fire 2001 Edition* for other smoke
management planning suggestions and smoke management techniques for
reducing or redistributing emissions.

Special considerations must be taken to address smoke when the project
is in a non-attainment area for a National Ambient Air Quality Standards
including insuring compliance with SIP/TIP provisions and addressing
Conformity. Projects which will potentially impact Class I areas should
address any efforts to minimize smoke impacts on visibility. Comply with
all local, state, tribal and federal pre-burn and post-burn data
reporting requirements.

**20. Monitoring**

Prescribed fire monitoring is defined as the collection and analysis of
repeated observations or measurements to evaluate changes in condition
and progress toward meeting a management objective. Describe the
monitoring that will be required to ensure that Prescribed Fire Plan
objectives are met. For the prescribed fire, at a minimum specify the
weather, fire behavior and fuels information (forecast and observed) and
smoke dispersal monitoring required during all phases of the project and
the procedures for acquiring it, including who and when.

**21. Post-burn Activities**

Describe the post-burn activities that must be completed. This may
include post-burn report, safety mitigation measures, and rehabilitation
needs including those as a result of pre-burn activities undertaken.

**Appendices**

Include all the required appendices.

-   Maps

-   Technical Review Checklist

-   Complexity Analysis

-   Job Hazard Analysis

-   Fire Behavior Modeling Documentation or Empirical Documentation

**Project file**

All prescribed fire Project Files will contain the following
information. Agencies and/or administrative units may require additional
information.

-   Prescribed Fire Plan

-   Monitoring data including weather, fire behavior, fire effects and
    smoke dispersal observations

-   Weather forecasts

-   Notifications

-   Documented prescribed fire organization(s)

-   Any agreements related to implementation

-   Multiple day GO/NO-GO checklist(s), if applicable

-   Re-validation of the Agency Administrator Pre-Ignition Approval
    Checklist

Depending on the scope and complexity of the prescribed fire, optional
information and/or further documentation that may be included in the
Project File include:

-   After Action Review (see Chapter 8 of the *Interagency Prescribed
    Fire Planning and Implementation Procedures Reference Guide*)

-   Incident Action Plans, Unit Logs

-   Press releases, etc

-   Implementation costs

-   Actual ignition patterns and sequences used

-   Smoke management information

-   Agency individual fire occurrence form

-   Detailed Post Burn Report

-   NEPA documentation

-   Permits

**After Action Review (AAR)**

Each operational shift on a prescribed fire should have an informal
After Action Review (AAR). Certain events or a culmination of events
that may affect future prescribed fire implementation and/or policy
should be submitted via the Roll-up documentation (Found at
http://www.wildfirelessons.net). The questions to answer in conducting
an AAR are:

-   What did we set out to do (what was planned)?

-   What actually happened?

-   Why did it happen that way?

-   What should be sustained? What can be improved?

**Escaped Fire Reviews**

The agency administrator will be notified of an escaped fire. The agency
administrator is required to make the proper notifications. All
prescribed fires declared a wildfire will have an investigative review
initiated by the agency administrator. The level and scope of the review
will be determined by policy and procedures in *Wildland Fire and
Aviation Program Management and Operations Guide (BIA\--Blue Book) or
Interagency Standards for Fire and Aviation (Red Book)*.

The goal of the escaped prescribed fire review process is to guide
future program actions by minimizing future resource damage and/or
preventing future escapes from occurring by gathering knowledge and
insight for incorporation into future resource management and prescribed
fire planning. The objectives of the review are to:

-   Determine if the Prescribed Fire Plan was adequate for the project
    and complied with policy and guidance related to prescribe fire
    planning and implementation.

-   Determine if the prescription, actions, and procedures set forth in
    the Prescribed Fire Plan were followed.

-   Describe and document factual information pertaining to the review.

-   Determine if overall policy, guidance, and procedures relating to
    prescribed fire operations are adequate.

-   Determine the level of awareness and the understanding of the
    personnel involved, in regard to procedures and guidance.

At a minimum, the escaped fire review report will include the following
elements:

-   An analysis of seasonal severity, weather events, and on-site
    conditions leading up to the wildfire declaration.

-   An analysis of the actions taken leading up to the wildfire
    declaration for consistency with the Prescribed Fire Plan.

-   An analysis of the Prescribed Fire Plan for consistency with policy.

-   An analysis of the prescribed fire prescription and associated
    environmental parameters.

-   A review of the approving line officer's qualifications, experience,
    and involvement.

-   A review of the qualifications and experience of key personnel
    involved.

-   A summary of causal agents contributing to the wildfire declaration.

Document the incident, including all actions prior to and after the
escape. Set up a file that includes all pertinent information, i.e., the
Prescribed Fire Plan; a chronology of events including the prescribed
fire report; unit logs and individual statements; weather forecasts
including any spot forecasts; weather information taken on site and
Remote Automated Weather Station (RAWS) and National Fire Danger Rating
System (NFDRS) data for the day of the escape from the nearest
station(s); photos; and all other pertinent information. Since all
prescribed fires are planned management actions, an escape may lead to a
Tort Claim and liability issues. Special attention to documentation is
critical.

An independent review team is recommended for conducting escaped fire
reviews. The number of individuals assigned to the team and their
functional expertise should be commensurate with the scope and focus of
the review. Interagency participation is highly recommended for all
prescribed fire reviews.