**SOUTHWEST AREA
INTERAGENCY**![](media/image1.png){width="0.8333333333333334in"
height="1.2729166666666667in"}

**FIRE RESTRICTIONS AND CLOSURES**

> **TOOLBOX**

![](media/image2.png){width="5.883333333333334in"
height="7.489583333333333in"}

**Table of Contents**

> 1\.
> Introduction......................................................................................1\
> A.
> Audience................................................................................2\
> B. Interagency
> Coordination.............................................................2\
> C.
> Update...................................................................................2
>
> 2\. Roles and
> Responsibilities...................................................................\...3\
> A. Southwest Area Restriction/Closure
> Coordinator.................................4\
> B. Agency Administrator / Tribal
> Leader..............................................4\
> C. Fire Management
> Officer.............................................................4\
> D. Public Affairs
> Officer.................................................................4\
> E. Law
> Enforcement......................................................................4
>
> 3\. Indicators for Fire Restrictions and
> Closures..............................................\...5\
> A. Preparing Fire Restrictions and
> Closures.......................................... 9\
> B. Energy Release Component (ERC)
> Indicators.....................................9
>
> 4\. Progression of Restrictions and
> Closures...................................................15\
> A. Potentially limited
> activities........................................................16\
> B. Size and Scope of Restrictions and
> Closures.....................................16\
> C. Length of
> Time.......................................................................18\
> D.
> Closures..................................................................\..............18\
> E.
> Exemptions...........................................................................18\
> F. Rescinding Fire Restrictions and
> Closures........................................18
>
> 5\. Developing an
> Order..........................................................................19
>
> 6\. Coordination and Communication
> Strategies..............................................21\
> A. Pre-decisional
> Coordination......................................................\...22\
> B. Post-decisional
> Communication....................................................31
>
> 7\.
> Implementation.................................................................................33
>
> CHARTS
>
> 1\. Energy Release Component
> Graph................................................11
>
> EXHIBITS
>
> A. Restriction and Closure Decision
> Checklist....................................7\
> B. Potential Internal and External
> Contacts.......................................23\
> C. Sample Communication
> Plan........................................................26
>
> FIGURES
>
> 1\. Southwest Area Predictive Services
> Areas.........................................10\
> 2. "Monsoon" Start
> Date................................................................14
>
> TABLES
>
> 1\. Energy Release Component Value
> (G-Model)....................................12

LIST OF
PREPARERS...............................................................\................35
AGENCY/TRIBAL APPENDICES

> A. Authority and
> Policy..............................................................36\
> B. Roles and
> Responsibilities.......................................................60\
> C. Local
> Agreements.................................................................63\
> D. Key
> Contacts......................................................................64\
> E. Closure and Restrictions Approved
> Templates...............................65\
> F. Exemptions and Authorized
> Activities.........................................83\
> G. Sample Entry/Activity Authorization
> Process..............................\...88\
> H. Sample
> Letters..................................................................\...91\
> I. National Recreation Reservation
> Service......................................96\
> J. Signing
> Examples........................\.............................................105
>
> **1. INTRODUCTION**

*The purpose for this guide, target audience,*

*interagency coordination, and update.*

> **1. INTRODUCTION**

The Southwest Strategy Regional Executive Committee requested
development of an interagency fire restriction and closures procedures
plan. The USDA Forest Service developed the first Southwestern Fire
Restrictions and Closures Toolbox in April 2003. The success of the
original Toolbox prompted the development of an interagency format. The
value of this toolbox is increased efficiency and consistency when
considering fire restrictions and/or closures. This toolbox assists
Southwest Area agency administrators and tribal leaders to develop and
implement fire restrictions and/or closures.

The purpose of this document is to:

-   Develop guidance for the Southwest Area to address fire restrictions
    and closures.

-   Provide a framework that provides consistency for fire restrictions
    and closures.

-   Provide guidance for agency administrators who develop and implement
    fire restrictions and closures.

-   Provide all restriction/closure information on the Southwest
    Coordination Center website.

-   Facilitate strong interagency and intra regional coordination and
    communication.

-   Provide a working model of a communication plan.

-   Discuss enforcement of fire restrictions and closures.

Consistency and coordination will encourage public acceptance,
understanding, and compliance with restrictions and closures.
Communication of clear, consistent messages to the public, forest and
recreational users, partners, other agencies, and our own employees will
eliminate the confusion that can be associated with the restriction
process.

**A. Audience**

The principal audience for this toolbox is agency administrators and
their staffs involved in the restriction process. It will provide
insight into the scientific parameters that drive the fire restriction
process. It will help to efficiently develop orders, implement
restrictions and closures, and help the public understand the rationale
and effects of fire restrictions and closures.

**B. Interagency Coordination**

Cooperating federal, state, and local agencies will benefit from a
common procedure for fire restrictions and closures; especially when
their jurisdictional boundaries overlap in the restriction process. The
goal is to coordinate with interagency partners and cooperating agencies
to develop common processes when possible. It is the responsibility of
each agency administrator to work with his or her key cooperators and
partners.

**C. Update**

The Southwest Coordination Group (SWCG), Prevention and Information
Subcommittees will review this document annually. If agencies or tribes
would like to add or modify their appendix materials, the information
can be sent to the Southwest Area restriction/closure coordinator via
email at: [swa <restrictions@yahoo.com>]{.underline} or fax to: (505)
842-3801.

**2. ROLES and RESPONSIBILITIES**

*Southwest Area Restriction/Closure Coordinator,*

*Agency Administer/Tribal Leader, Fire Management*

*Officer, Public Affairs Officer, and Law Enforcement*

**2. Roles and Responsibilities**

**A. Southwest Area Restriction/Closure Coordinator**

-   Reports to the Southwest Coordination Center (SWCC) director and
    collects restriction, closure, and rescission information from all
    units.

-   Receives restriction, closure, and rescission information at:
    [[swa_restrictions@yahoo.com]{.underline}](mailto:swa_restrictions@yahoo.com)
    and posts information on the SWCC Web Site.

-   Describes the format needed to post maps and documents on the SWCC
    Web Site.

-   Coordinates with the SWCG Information Committee to provide current
    information for the 1-877-864-6985 toll free restrictions and
    closures information line.

**B. Agency Administrator or Tribal Leader**

-   Is responsible for making closure, restriction, and rescission
    decisions for their unit.

**C. Fire Management Officer**

-   Monitors conditions on the unit, including the energy release
    component.

-   Coordinates within their fire management geographic area prior to
    making recommendations for restrictions, closures, and rescissions.

-   Recommends restrictions, closures, and rescissions to the agency
    administrator or tribal leader.

**D. Public Affairs Officer**

-   Prepares communication plan; if one is needed.

-   Coordinates with other agencies, tribes, and interested public.

-   Communicates restriction, closure, and rescission information and
    provides SWCC restrictions coordinator with electronic copy of
    restriction, closure, or rescission map.

**E. Law Enforcement Officer**

-   Prepares closure decision order and ensures proper posting of
    document.

> **3. INDICATORS FOR FIRE**
>
> **RESTRICTIONS and CLOSURES**

*Preparing Fire Restrictions and Closures, Energy*

*Release Component (ERC) Indicators, Southwest*

*Area Predictive Services Areas figure, ERC Graph,*

*ERC Table, Monsoon Start Date Figure, and*

*Restriction and Closure Decision Checklist*

**3. Indicators for Fire Restrictions and Closures**

This section includes five criteria that should be used when considering
restrictions/closures. The first criterion is quantitative and based on
weather and burning conditions. The remaining four are more subjective
and allow for broad discretion by the agency administrator or tribal
leader considering local conditions and issues. Refer to your agency or
tribal management plan for additional guidance and information. Refer to
Exhibit A for a list of questions to consider when contemplating fire
restrictions or closures.

> 1\. Energy Release Component and 10-day Energy Release Component
> (ERC)\
> forecast. Further guidance on these criteria is found in Table 1,
> page13.
>
> 2\. Risk to firefighters and public safety.
>
> 3\. Ongoing fire activity (number and size of fires) and suppression
> resource availability, including incident management teams.
>
> 4\. Social, political, and economic impacts.
>
> 5\. Increase or decrease in recreation use.

**Exhibit A**

**Restriction and Closure Decision Checklist**

The following are questions to be considered when contemplating a fire
restriction and/or closure. The factors that form the basis for the
decision should be documented.

**What is at risk?**

-   Public safety

-   Public and private property

-   Natural resources

**What are you trying to achieve?**

-   Reduced human caused starts

-   Public and firefighter safety

-   Are there other ways of achieving your objectives?

**Are adequate fire resources available?**

-   Is there the ability to effectively handle initial attack?

-   Are there enough engines, air tankers, helicopters, crews, etc.,
    available?

-   Are there enough Incident Management Type I and II teams available?

**What is the predicted weather for the next several weeks?**

-   Will there be high winds of long-term duration?

-   Will there be low relative humidity during the day and poor
    nighttime recovery?

-   What are the expected temperatures (maximum/minimum); will there be
    minimum nighttime temperatures higher than 50° F?

-   What are the lightning predictions?

**What is the daily fire occurrence situation?**

-   Are there multiple starts?

-   Are fire occurrences and associated control problems increasing or
    decreasing?

-   Are the daily fire starts more attributable to human cause or
    lightning/natural causes?

**Is an increase/decrease in recreational visitor days, i.e., holidays
and special events, expected?**

**What are the socio-economic considerations?**

-   Will there be direct and cumulative impacts on rural economies,
    tourism, and authorized permittes?

-   Has the right message been given to the public and other
    stakeholders to establish groundwork for restrictions/closure?

-   Is it possible to minimize effects on the local community and users
    while achieving desired objectives?

-   What is the wildland urban interface complexity?

-   What is the public desire for recreation opportunities and events?

**What actions are being taken by surrounding land managers and by
local, state, or tribal authorities?**

**What direction is in the land management plan for the affected area?**

-   Are there research natural areas or other special interest areas
    that may be affected?

-   Are there wilderness or wild and scenic rivers that may be affected?

**What is the workload associated with restrictions and closures?**

-   Will the workload associated with fire closures compete with fire
    management?

-   Are personnel available to assist some users, such as
    outfitter/guides, who may ask for assistance in moving their
    operations to areas of lower or no restrictions?

-   Will refunds or fee reductions be appropriate for reservations, and
    certain uses and contacts?

-   Are personnel available to provide public information and post the
    order on the ground and on the Internet?

• Are there adequate personnel for patrol and enforcement? **Will the
restrictions/closure be enforceable?**

-   Is law enforcement involved early in the consideration of a
    restriction or closure?

-   Will entry/activity permits be issued, and if so, in what situations
    and under what conditions?

-   Is consistent and highly visible signage available?

-   Is there a common goal with state & local agencies, adjacent
    national forests, and interior units?

**Are there preparations for the next phase, whether that would be a
higher level of restriction, closure, or rescission of an order?**

**A. Preparing Fire Restrictions and Closures**

Agency administrators and tribal leaders are responsible for creating or
modifying their restriction/closure orders. - Appendix E contains
agency/tribal templates to be used when developing a restriction or
closure order. It is important to avoid making changes when there is a
likelihood that the restriction or closure will need to be re-imposed in
the foreseeable future.

To facilitate consistency across the Southwest Area, enacting
restrictions is triggered by gradual drying trends tracked by area wide
weather stations and the use of the Energy Release Component (ERC)
tables (Table 1).

**B. Energy Release Component Indicator Recommendations**

The Southwest Area Predictive Services Group located in the Southwest
Interagency Coordination Center developed the sample ERC threshold
recommendations (for fuel model G only) which are displayed in Table 1.
The ERC is generated using Fire Family Plus and the National Fire Danger
Rating System. It is based on the estimated potential available energy
released per unit area in the flaming front of a fire and is especially
useful for correlating existing conditions against long-term records.

The Predictive Services Group also delineated fourteen \"Predictive
Services Areas\" (PSA's) as shown in Figure 1. The PSA's were defined
primarily by topography and diurnal weather patterns. Fire weather data
and fire history from each PSA was used to develop the values in the ERC
table. This included all days from April 1 to July 31, from 1975 to
2002. Only fires of 100 acres or larger were used for the analysis
during this time frame.

![](media/image3.png){width="6.072916666666667in"
height="4.95in"}Western Arizona

3\. Southwestern Arizona

4\. Northeastern Arizona/Northwestern New Mexico

5\. Central Arizona

6\. Southeastern Arizona

7\. Continental Divide and Jemez Mountains

8\. Western New Mexico and Eastern Arizona

9\. Southwestern New Mexico and Rio Grande Valley

10\. North-Central Mountains of New Mexico

11\. Central Mountains of New Mexico

12\. South-Central Mountains of New Mexico

13\. Northeastern New Mexico and Northwestern Texas

14\. Southeastern New Mexico and Southwestern Texas

The Predictive Services Group posts the ERC charts March through
October, Tuesdays and Fridays by 1600 until the ERCs in all PSAs fall
below the 90^th^ percentile and the monsoons are established per their
criteria. They can be accessed on the Internet at:
[www.fs.fed.fs/fire/.]{.underline} Once there navigate to: Predictive
Services; Fire Outlooks; Weekly; and then click on the PSA of choice.

These charts display the historical and current ERCs for the PSA, as
well as, the 10-day ERC forecast. An example ERC chart is displayed
below in Chart 1.

Use of the following ERC Table is recommended across the Southwestern
Area even though units may (appropriately) use other fuel models for
other purposes (Pocket cards, adjective ratings, etc.). Use of the G
model best predicts long-term fire potential and is subjected less to
daily changes in weather. This will provide more consistency across the
region for restrictions/closures purposes.

Chart 1. Energy Release Component Graph

> ![](media/image4.png){width="5.3069444444444445in"
> height="3.9770833333333333in"}

Table 1. Energy Release Component Value (G-Model)

+------------------+---------+---------+---------+---------+---------+
| **Percentile     |         | **1/2   |         | **90th  | **97th  |
| Value**          |         | 90th    |         | %**     | %**     |
|                  |         | %**     |         |         |         |
+------------------+---------+---------+---------+---------+---------+
| **Southwest      | *       | **Level | **Level | **Level | **Level |
| Area**           | *Levels | 3-**    | 3+**    | 4**     | 5**     |
|                  | 1&2**   |         |         |         |         |
| **Preparedness   |         |         |         |         |         |
| Levels^1^**      |         |         |         |         |         |
+------------------+---------+---------+---------+---------+---------+
| **\*Predictive   | *Energy |         |         |         |         |
| Service Areas**  | Release |         |         |         |         |
|                  | Comp    |         |         |         |         |
|                  | onents* |         |         |         |         |
+------------------+---------+---------+---------+---------+---------+
| 1                | 18      | 36      | 53      | 71      | 82      |
+------------------+---------+---------+---------+---------+---------+
| 2                | 24      | 48      | 71      | 95      | 102     |
+------------------+---------+---------+---------+---------+---------+
| 3                | 24      | 49      | 73      | 97      | 101     |
+------------------+---------+---------+---------+---------+---------+
| 4                | 19      | 38      | 56      | 75      | 85      |
+------------------+---------+---------+---------+---------+---------+
| 5                | 19      | 39      | 58      | 77      | 87      |
+------------------+---------+---------+---------+---------+---------+
| 6                | 23      | 45      | 68      | 90      | 98      |
+------------------+---------+---------+---------+---------+---------+
| 7                | 19      | 38      | 57      | 76      | 87      |
+------------------+---------+---------+---------+---------+---------+
| 8                | 20      | 39      | 59      | 78      | 91      |
+------------------+---------+---------+---------+---------+---------+
| 9                | 24      | 48      | 72      | 96      | 103     |
+------------------+---------+---------+---------+---------+---------+
| 10               | 18      | 35      | 53      | 70      | 83      |
+------------------+---------+---------+---------+---------+---------+
| 11               | 20      | 39      | 59      | 78      | 87      |
+------------------+---------+---------+---------+---------+---------+
| 12               | 18      | 36      | 53      | 71      | 79      |
+------------------+---------+---------+---------+---------+---------+
| 13               | 16      | 32      | 47      | 63      | 73      |
+------------------+---------+---------+---------+---------+---------+
| 14               | 20      | 40      | 60      | 80      | 89      |
+------------------+---------+---------+---------+---------+---------+

The ERC levels above, when combined with the predicted 10-day ERC
forecast are recommended indicator levels to consider various fire
restrictions and/or closures for fuel model G. An example follows.

**ERC Calculation Example:** Assumption: PSA #1.

+-----------------------------+------------------+--------------------+
|                             | Example 1        | > Example 2        |
+-----------------------------+------------------+--------------------+
| > ERC                       | 68               | > 74               |
+-----------------------------+------------------+--------------------+
| > 10-day ERC Forecast       | Up               | > Down             |
+-----------------------------+------------------+--------------------+

The ERC table displays that an ERC of 71 is the threshold to move from
one level of restriction to a higher level. In this example:

Example 1 --Consider moving into restrictions as the 10-day forecast
trends upward. Example 2 --Consider the other indicators on page 9
before going into restrictions.

> 1 Refer to Figure 1 for the map and descriptions of Predictive Service
> Areas

The Predictive Services Group will work in partnership with the wildland
agency partners to determine the effectiveness of these values for
restriction/closure consistency.

Remote Automated Weather Stations (RAWS) are used to collect the weather
data in each of the PSA's. The precise location of a weather station is
very important in order to collect data that accurately represents the
PSA. Monitoring data on a regular basis will help to identify when a
problem in the data collection may exist. Accurate RAWS data and daily
National Fire Danger Rating System (NFDRS) inputs are essential for ERC
calculations and resultant decisions on restrictions and/or closures.

![](media/image5.png){width="6.016666666666667in"
height="9.163194444444445in"}

**4. PROGRESSION OF RESTRICTIONS**

**AND CLOSURES**

*Potentially limited activities, size and scope of*

*restrictions and closures, length of time, closures,*

*exemptions, and rescinding fire restrictions and*

*closures*

**4. Progression of Restrictions and Closures**

The progression from "no restrictions" to "restrictions" to "partial
closure" to "full closure" should be viewed as a continuum. As fire
danger and/or fire preparedness level changes, the jurisdictional agency
evaluates risks and compares those risks to the potential costs and
benefits of imposing varying degrees of restrictions and/or closures.

Each order developed involves implementation of progressively more
limiting restrictions. Orders may include a combination of restricted
activities and progressively be cumulative in nature---that is, more
limiting orders may continue to implement restrictions developed earlier
in the fire season, while geographic area closures continue to implement
all previously developed restrictions, as appropriate. Within each
order, the agencies have the option of adding controls to the
restrictions and/or closures that are appropriate for the circumstances
and that will best meet the fire restriction or closure objectives.

**A. Potentially Limited Activities**

The following general options will help agencies determine what
activities of restriction/closure will be limited. These activities are
typically limited when there is an increasing fire danger and/or an
increasing preparedness level.

Early restrictions are aimed at preventing the start of wildfires based
on human activities that are known to be high risk, specifically:
smoking, campfires, and fireworks.

***Option 1:*** No smoking outside of vehicles, or buildings. No open
campfires outside of developed sites. No fireworks.

As the risks increase, the agencies may choose to restrict additional
activities and place more restrictions on activities addressed in
previous orders. This version intensifies the restrictions from prior
orders by focusing on activities that have a relatively high risk of
causing a fire start.

These activities will affect forest users and will have additional
economic impacts to contractors, permittees, and others. Therefore,
limiting these activities may involve a consideration of decision
checklist questions.

***Option 2:*** In addition to the agency's prior restriction,
prohibitions for explosives, chainsaws or other internal combustion
engines (possibly during certain hours), welding, and using a motor
vehicle off forest development roads. The order may require the use of
approved spark arresters.

> **B. Size and Scope of Restrictions and Closures**

Restrictions or closures should be implemented on the smallest
geographic scale to affect the fewest number of people that will meet
the need for and objectives of the restriction/closure. This balancing
of benefits and costs is based on: carefully defining the need for the
restrictions; the risks faced by the agency; the potential benefits of
the restriction/closure; and the cost to the public, permit holders, and
contractors, as well as the cost of implementation.

**Special Considerations**

Tribal treaty rights must be considered. Also, every restriction or
closure must consider the right of access to private property and other
outstanding private property rights.

**Identifiable Area Boundaries**

For ease of implementation and interagency coordination, a restriction
or closure should be designed to cover an easily identifiable, logical
geographic area. This may be a county, ranger district, park boundary, a
watershed, or an area bounded by specified roads or topographic
features.

All closures should be accompanied by a high-quality map clearly
delineating the boundaries of the closure in such a manner that the
public can readily locate those boundaries on the ground. As enforcement
is a key component of every closure, the boundaries must be designed to
facilitate compliance enforcement.

**Multiple Area Restrictions**

Various orders might be in effect in more than one specified area across
the landscape. However, before making the decision to implement more
than one specific restriction at a time on the landscape, there needs to
be careful consideration of the potential for confusion and for
potential effects on public and forest users.

Small geographic extent restriction could be used when needed
specifically for public or firefighter safety. An example would be to
close the area within and around a wildfire, including the estimated
maximum burned area per the Wildland Fire Situation Analysis (WFSA).

**Other Options to Consider**

An order may include the following to allow certain recreation
activities:

-   Allow day use only.

-   Allow day use only at developed recreation sites.

-   Allow overnight use in wilderness and parking at designated
    trailheads.

-   Allow overnight use only in developed campgrounds.

-   Allow overnight use only in developed campgrounds with full-time
    hosts.

-   Allow day/overnight use in specified areas that are easy to patrol
    and monitor.

-   Allow use only in developed sites along county/state highways.

-   Allow only agricultural burning in certain areas or counties.

-   Allow fireworks where they are part of a public exhibit approved by
    the fire department.

-   Allow fires in wood or charcoal stoves or grills within yards
    associated with a residence

> or on the premises of a business.

-   Allow fires in cooking or heating devices if the fuel is kerosene,
    white gas, or propane.

**C. Length of Time**

Orders should only be considered with regard to long-term risks. It is
important to avoid the appearance of constantly changing the activities
that are limited in restrictions. Once a decision has been reached that
an order is appropriate, then that order should remain in place until
the danger has clearly passed. A short-term change in weather may give
the appearance that the risk has passed, but if followed by a warm dry
trend, the risks could again accelerate. While it is not prudent to
impose more severe restrictions than are warranted, the evaluation of
risk should be made over an extended timeframe.

When an order is no longer needed based on the risk assessment and
evaluation indicates the danger has passed for the foreseeable future,
the order may be reduced to a less limiting restriction by implementing
a new, supplemental, or modified order. In many instances, it will be
more appropriate to phase out of restrictions, rather than immediately
dropping to no restrictions.

**D. Closures**

Closures can vary from the partial closure of specific areas of the unit
to full closure of the agency's jurisdictional areas. Closures are
selected when the ability to mitigate risks using earlier restrictions
are no longer viable. The social, economic, and political impacts of
implementing full or partial closures at this point are outweighed by
the benefits associated with virtually eliminating the potential for
human caused fire starts.

***Partial Closure Option:*** Partial unit closure, with very few
exemptions (as detailed in the agency/ state/ tribal closure order).

***Full Closure Option:*** Full unit closures, with very few exemptions
(as detailed in the agency/ state/ tribal closure order).

**E. Exemptions**

Exemptions should be managed and mitigated according to risks and
benefits. The orders need to progressively focus on those members of the
public and activities for which there is the least amount of active
control. This could force restrictions upon activities of the general
public before activities occurring under contract or permit are
restricted.

The rationale used by agencies for granting or denying exemptions should
be documented in writing. Exemptions will be authorized through the
individual agency or tribal procedures. This information can be found in
Appendices F and I.

**F. Rescinding Fire Restrictions and Closures**

Rescinding orders will usually occur rapidly based on the establishment
of the monsoons. Use of ERC tables is not the only factor to consider
when rescinding restrictions. With the onset of sufficient moisture, use
of the other four subjective criteria, coordination with adjoining PSA
units, and interagency cooperators during the establishment of the
monsoons will help achieve desired consistent messages for the public.

The same coordination that takes place among interagency partners when
implementing the restriction process should be adhered to in the
rescission process. Occasionally, an agency is ready to remove fire
restrictions and other adjacent cooperators may not have received
sufficient moisture or are faced with political considerations that keep
them in a level of fire restriction. Communicate clearly in your press
releases the reasons for these differences in agency actions.

Identify a point of contact for those cooperators for further
information.

**5. DEVELOPING AN ORDER**

**5. Developing an Order**

Regulations and authorities vary between agencies, therefore, the
approach to identify and implement restriction or closure strategies
will vary. This includes: the development steps, communication planning,
and coordination with interagency partners.

Because of the emergency nature of fire restrictions or closures, some
steps in the process may be shortened or delayed. The agency will have
the appropriate agency administrators sign the order. The agency will
then distribute the order to their Public Affairs office and send an
electronic copy to the Southwest Area restriction/closure coordinator
at:
[[swa_restrictions@yahoo.com]{.underline}](mailto:swa_restrictions@yahoo.com)

Order templates for each agency can be found in Appendix E.

**6. COORDINATION and**

**COMMUNICATION STRATEGY**

*Pre-decisional Coordination, Post-decisional*

*Communication and Sample Communication Plan*

**6. Coordination and Communication Strategy**

**A. Pre-Decisional Coordination**

Coordination is fundamental to compliance and support of fire
restrictions and/or closures. Discuss your intentions with other units
within your zone. When you have an anticipated restriction or closure
date, send an email message with your intended date to the Southwest
Area restriction/closure coordinator for distribution to other agencies
and tribes.

Before implementing fire restrictions and/or closures, agency personnel
need to develop a list of individuals to consult with, or to notify of,
the impending restrictions and/or closures. A list of potential internal
and external contacts is found in Exhibit B.

Communication planning involves making decisions about program goals and
objectives, identifying key audiences, and determining strategies to
achieve overall program objectives. Although each situation requires
specifically tailored elements, the overall approach is similar. Common
steps include:

-   Defining program goals and objectives.

-   Determining where to invest time, energy, and talent.

-   Preparing action plans to achieve specific objectives.

-   Determining the communication necessary to achieve understanding and
    commitment.

-   Securing agreement among all key people on who and what needs to be
    committed to the effort.

-   Internal and external communication should be addressed in the plan.

-   Refer to the sample communication plan in Exhibit C for assistance
    with the development of a communication plan.

**Exhibit B**

**Potential Internal and External Contacts**

**Potential Internal Contacts**

A. Aviation and Fire Management

-   Fire Operations

-   Fuels Management/Prevention

B. Law Enforcement and Investigations

-   Special Agent in Charge

-   Chief Ranger

-   Law Enforcement Rangers

C. Range, Recreation, Wilderness, and Heritage Staff

D. External Affairs and Congressional Liaisons

E. Contracting and Acquisition Management

F. Oil, Gas, and Minerals

-   Geologists

G. Lands Special Uses

-   Grants and Special Uses

H. Timber

-   Timber Sales Administration

> I. Office of the General Counselor or Solicitor

**Potential External Contacts**

-   Regional and State Office and local public land, refuge, park and
    forest management

> units, State Forestry District Office, and local fire departments.

-   Fire management staff and appropriate fire dispatch center

-   Southwest Area Interagency Coordination Center -- Fire Information

-   BLM, BIA, USF&WS, DOE, NPS, USFS, AZ State Land Department, and NM
    State

> Forestry Division.

-   Public Land Information Centers

-   Tribes

-   Researchers

-   Congressional members

-   Governors Office

-   State officials and land and resource agencies

-   Emergency Management Office

-   State parks

-   Transportation departments

-   State wildlife agencies

-   County and city officials

-   General public

-   Private landowners

-   Commercial interests

-   Vendors

-   Chambers of Commerce

-   Visitor and Convention Centers

-   Permittees and contractors

-   Grazing permittees

-   Oil and gas lessees

-   Special use permittees (utility, research, outfitter guides, lodges,
    resorts, etc.)

-   Timber Sale contractors

-   Construction contractors

-   Service contractors

-   Supply contractors

-   Mining operators

-   Concessionaires

-   Cooperators and volunteers

-   Non-Government interest groups and partners

**Exhibit C**

**Sample Communication Plan**

**COMMUNICATION STRATEGY AREA CLOSURES**

**Communication Objectives**

> A. Inform the internal and external audiences that closures are in
> place.
>
> B. Maintain or enhance the credibility of agency managers in providing
> for public safety, resources, property, and firefighter safety.
>
> C. Maintain or enhance cooperative relationships among affected
> agencies.
>
> D. Emphasize the areas that are OPEN to minimize impact to economy.
>
> E. Keep the message alive until closures are lifted.
>
> F. Maintain excellent documentation.

**Key Messages**

-   The issues taken into consideration when determining whether or not
    to close an area are: 1) the ERC and 10-day ERC forecast; 2) risk to
    firefighters and public safety; 3) ongoing fire activity and
    suppression resource availability; 4) social, political, and
    economic impacts; and 5) recreation use.

-   The closure area will reopen when the appropriate land managers
    determine that a significant amount of widespread rain has
    significantly reduced the risk of wildfire to a manageable level and
    that hot, dry conditions will not quickly return.

-   Closing an area is not as simple as closing a gate. Closures are
    logistically complex and take time to implement.

-   Closing a public use area is an extreme last resort fire prevention
    tool. Restrictions are only effective in reducing the occurrence of
    fire. Recent fire behavior demonstrates that the catastrophic risk
    has increased.

-   Closures are not guarantees against wildfires, but they do reduce
    the chances more than fire restrictions.

-   It costs about \$7 thousand a day to close public land. It costs
    about \$250 thousand to \$1 million a day to fight a wildfire.

**Examples**

-   During the 1996 area closures (May 22 -- July 8), there were 16
    human caused fires on the Coconino National Forest in Arizona.
    During the 2000 closures (June 8 -- June 27), there were two human
    caused fires. The 10-year average for late May to mid-July is 80
    human caused fires.

-   Approximately XXXX percent of the area remains OPEN!

-   Fines for violating the area closure are a minimum of \$100 and a
    maximum of \$5,000. (Will vary by individual agency)

**Monitoring Results**

This communication strategy is one of the tools an agency can employ as
a step toward fire prevention. Success will be measured by: 1) number of
citations issued; 2) number of human caused fire starts (campfires); and
3) satisfaction by the other agencies and partners that they are
informed and have sufficient tools to assist in informing the public and
enforcing the closures.

**Examples of Information Team Roles**

> • Incident Commander

These other positions may be filled internally or externally through
other agencies:

-   Information Team Leader

-   Information Center Manager

-   Key Support and Center Staff

-   Prevention Specialist

> Tasks List for Communication Plan

+-----------------+-----------------+----------------+----------------+
| > ***Task***    | ***Person***    | ***Date***     | > ***Com.      |
|                 |                 |                | > O            |
|                 |                 |                | bjective(s)*** |
+-----------------+-----------------+----------------+----------------+
| > Draft and     |                 |                | > A-D          |
| > finalize      |                 |                |                |
| >               |                 |                |                |
| > news release  |                 |                |                |
+-----------------+-----------------+----------------+----------------+
| > Prepare press |                 |                | > A-F          |
| > kits          |                 |                |                |
+-----------------+-----------------+----------------+----------------+
| > Prepare maps  |                 |                | > A-F          |
+-----------------+-----------------+----------------+----------------+
| > Host press    |                 |                | > A-D          |
| >               |                 |                |                |
| > conference    |                 |                |                |
| > and fax       |                 |                |                |
| >               |                 |                |                |
| > press release |                 |                |                |
| > state­         |                 |                |                |
| >               |                 |                |                |
| > wide          |                 |                |                |
| > immediately   |                 |                |                |
| >               |                 |                |                |
| > following     |                 |                |                |
+-----------------+-----------------+----------------+----------------+
| > Set up and    |                 |                |                |
| > staff         |                 |                |                |
| >               |                 |                |                |
| > information   |                 |                |                |
| > center        |                 |                |                |
+-----------------+-----------------+----------------+----------------+
| > Distribute    |                 |                | > A-F          |
| > closure       |                 |                |                |
| >               |                 |                |                |
| > info to       |                 |                |                |
| > community     |                 |                |                |
+-----------------+-----------------+----------------+----------------+
| > Phone calls   |                 |                | > A-C          |
| > to key        |                 |                |                |
| >               |                 |                |                |
| > part          |                 |                |                |
| ners/permittees |                 |                |                |
+-----------------+-----------------+----------------+----------------+
| > Distribute    |                 |                | > A-C          |
| > news          |                 |                |                |
| >               |                 |                |                |
| > release       |                 |                |                |
| > internally    |                 |                |                |
| >               |                 |                |                |
| > and           |                 |                |                |
| > externally    |                 |                |                |
| >               |                 |                |                |
| > (include RO,  |                 |                |                |
| > state­         |                 |                |                |
| >               |                 |                |                |
| > wide          |                 |                |                |
| > prevention    |                 |                |                |
| >               |                 |                |                |
| > teams, other  |                 |                |                |
| > agency        |                 |                |                |
| >               |                 |                |                |
| > PAOs,         |                 |                |                |
| >               |                 |                |                |
| >               |                 |                |                |
| Congressionals, |                 |                |                |
| >               |                 |                |                |
| > etc.)         |                 |                |                |
+-----------------+-----------------+----------------+----------------+
| > Make copies   |                 |                |                |
| > (per          |                 |                |                |
| >               |                 |                |                |
| > contact list) |                 |                |                |
| > of            |                 |                |                |
| >               |                 |                |                |
| > f             |                 |                |                |
| lyers/maps/etc. |                 |                |                |
+-----------------+-----------------+----------------+----------------+
| > Draft and     |                 |                | > A-F          |
| > finalize      |                 |                |                |
| >               |                 |                |                |
| > talking       |                 |                |                |
| > points        |                 |                |                |
+-----------------+-----------------+----------------+----------------+
| > Draft and     |                 |                | > A-F          |
| > finalize      |                 |                |                |
| >               |                 |                |                |
| > Flyers        |                 |                |                |
+-----------------+-----------------+----------------+----------------+
| > Coordinate    |                 |                | > B, C         |
| > with          |                 |                |                |
| >               |                 |                |                |
| > agency and    |                 |                |                |
| > local         |                 |                |                |
| >               |                 |                |                |
| > law           |                 |                |                |
| > enforcement   |                 |                |                |
| > to            |                 |                |                |
| >               |                 |                |                |
| > establish     |                 |                |                |
| > criteria for  |                 |                |                |
| >               |                 |                |                |
| > whom to call  |                 |                |                |
| > for           |                 |                |                |
| >               |                 |                |                |
| > closure       |                 |                |                |
| > violations    |                 |                |                |
+-----------------+-----------------+----------------+----------------+

+-----------------+----------------+----------------+-----------------+
| > ***Task***    | > ***Person*** | > ***Date***   | > ***Com.       |
|                 |                |                | >               |
|                 |                |                | Objective(s)*** |
+-----------------+----------------+----------------+-----------------+
| > Clip and file | > Info. Center | > Daily        | > E             |
| > all           | > Staff        |                |                 |
| >               |                |                |                 |
| > news articles |                |                |                 |
+-----------------+----------------+----------------+-----------------+
| > Maintain and  | > Info. Center | > Daily        | > E             |
| > file all      | > Staff        |                |                 |
| >               |                |                |                 |
| > phone logs    |                |                |                 |
+-----------------+----------------+----------------+-----------------+
| > Check Agency, | > Info. Center | > Daily        | > E             |
| > and           | > Staff        |                |                 |
| >               |                |                |                 |
| > SWICC web     |                |                |                 |
| > sites         |                |                |                 |
| >               |                |                |                 |
| > for accurate  |                |                |                 |
| > updates       |                |                |                 |
+-----------------+----------------+----------------+-----------------+
| > Answer phone  | > Info. Center | > Daily        | > A-F           |
| > calls,        | > Staff        |                |                 |
| >               |                |                |                 |
| > distribute    |                |                |                 |
| > info. to      |                |                |                 |
| >               |                |                |                 |
| > public/media  |                |                |                 |
+-----------------+----------------+----------------+-----------------+
| > Staff Info.   | > Info. Center | > Daily        | > A-F           |
| > Center        | > Staff        |                |                 |
| >               |                |                |                 |
| > 0700-2200     |                |                |                 |
+-----------------+----------------+----------------+-----------------+
| > Maintain      | > Lead         | > Daily/Weekly | > F             |
| > schedule      | > IO/Center    |                |                 |
| >               | >              |                |                 |
| > of people and | > Mgr.         |                |                 |
| > duties        |                |                |                 |
+-----------------+----------------+----------------+-----------------+
| > Daily         | > Lead IO      | > Daily        | > F             |
| > Briefings     |                |                |                 |
+-----------------+----------------+----------------+-----------------+
| > Keep          | > Lead IO      | > As needed    | > A-C           |
| > IC/Manager    |                |                |                 |
| >               |                |                |                 |
| > informed of   |                |                |                 |
| > any           |                |                |                 |
| >               |                |                |                 |
| > potential     |                |                |                 |
| > adverse       |                |                |                 |
| >               |                |                |                 |
| > reaction from |                |                |                 |
| > public        |                |                |                 |
+-----------------+----------------+----------------+-----------------+
| > Maintain unit | > Center IO    | > Daily        | > F             |
| > log           |                |                |                 |
| >               |                |                |                 |
| > (ICS form     |                |                |                 |
| > 214) and      |                |                |                 |
| >               |                |                |                 |
| > running       |                |                |                 |
| > narrative of  |                |                |                 |
| >               |                |                |                 |
| > Info. Center  |                |                |                 |
| >               |                |                |                 |
| > operations    |                |                |                 |
+-----------------+----------------+----------------+-----------------+
| > Manage        | > All          | > Daily        | > F             |
| > electronic    |                |                |                 |
| >               |                |                |                 |
| > and hard copy |                |                |                 |
| >               |                |                |                 |
| > documentation |                |                |                 |
| > files         |                |                |                 |
+-----------------+----------------+----------------+-----------------+
| > Arrange for   | > Lead and     | > As needed    | > A-F           |
| > media         | > Center IO    |                |                 |
| >               |                |                |                 |
| > interviews    |                |                |                 |
+-----------------+----------------+----------------+-----------------+

+-----------------------+-----------------------+---------------------+
| > ***Point of         | ***Contacted By***    | ***Date***          |
| > Contact***          |                       |                     |
+-----------------------+-----------------------+---------------------+
| > **Gyms and Fitness  |                       |                     |
| > Centers**           |                       |                     |
+-----------------------+-----------------------+---------------------+
| > **Video Stores**    |                       |                     |
+-----------------------+-----------------------+---------------------+
| > **Sporting Goods    |                       |                     |
| > Stores:**           |                       |                     |
+-----------------------+-----------------------+---------------------+
| > **Airports, Bus     |                       |                     |
| > Depots and**        |                       |                     |
| >                     |                       |                     |
| > **Train Stations**  |                       |                     |
+-----------------------+-----------------------+---------------------+
| > **Grocery Stores**  |                       |                     |
+-----------------------+-----------------------+---------------------+
| > **Youth Hostels**   |                       |                     |
+-----------------------+-----------------------+---------------------+
| > **Hotels and        |                       |                     |
| > Motels**            |                       |                     |
+-----------------------+-----------------------+---------------------+
| > **Car Rental        |                       |                     |
| > Agencies**          |                       |                     |
+-----------------------+-----------------------+---------------------+
| > **Shopping malls**  |                       |                     |
+-----------------------+-----------------------+---------------------+
| > **Plant Nurseries** |                       |                     |
+-----------------------+-----------------------+---------------------+
| > **Superstores**     |                       |                     |
+-----------------------+-----------------------+---------------------+
| > **Farm 'n Feed**    |                       |                     |
+-----------------------+-----------------------+---------------------+
| > **Book Stores**     |                       |                     |
+-----------------------+-----------------------+---------------------+
| > **Gas stations**    |                       |                     |
+-----------------------+-----------------------+---------------------+
| > **Chamber and       |                       |                     |
| > Visitor**           |                       |                     |
| >                     |                       |                     |
| > **Centers**         |                       |                     |
+-----------------------+-----------------------+---------------------+
| > **Public Lands      |                       |                     |
| > Information**       |                       |                     |
| >                     |                       |                     |
| > **Centers**         |                       |                     |
+-----------------------+-----------------------+---------------------+
| > **Public Utility    |                       |                     |
| > Companies**         |                       |                     |
+-----------------------+-----------------------+---------------------+
| > **Sheriff and       |                       |                     |
| > Police**            |                       |                     |
| >                     |                       |                     |
| > **Departments**     |                       |                     |
+-----------------------+-----------------------+---------------------+
| > **Service Groups**  |                       |                     |
+-----------------------+-----------------------+---------------------+
| > **Private           |                       |                     |
| > Campgrounds**       |                       |                     |
+-----------------------+-----------------------+---------------------+
| > **Community         |                       |                     |
| > Churches**          |                       |                     |
+-----------------------+-----------------------+---------------------+

**B. Post-Decisional Communication**

When you have a signed restriction or closure order, implement your
communication plan notification strategies. Work closely with your
public affairs office to make sure all those interested and affected by
the decision are notified.

Send the Southwest Area restriction/closure coordinator electronic
copies of the following:

-   Restriction and/or Closure Order

-   Any accompanying maps

-   Restriction and/or Closure Press Release

at: [swa <restrictions@yahoo.com>]{.underline}

**7. IMPLEMENTATION**

34

**7. Implementation**

Once the decision has been made to implement a restriction or closure,
many activities, groups and individuals may be affected. Appendix F
gives agency specific direction regarding how to address exceptions and
authorized uses.

**LIST OF PREPARERS**

The following individuals contributed to the completion of this
document:

Nancy Neskauskas, New Mexico EMNRD Forestry

Bruce Greco, USFS, Coconino National Forest

Tony Delfin, New Mexico EMNRD Forestry Division Vicky Fox, US Fish &
Wildlife Service

Jay Ellington, National Park Service, Southwest Coordination Center

Dave Behrens, Arizona State Land Department Denise McCaig, USFS,
Southwestern Region

With appreciation to the US Forest Service for their *Fire Restrictions
& Closures Toolbox* which served as a guide for this document.