CERRO GRANDE PRESCRIBED FIRE 

INDEPENDENT REVIEW BOARD REPORT 

MAY 26, 2000 

Independent Review Board 

State of Florida, Division of Forestry 

U.S. Department of the Interior, Bureau of Land Management 

U.S. Department of Agriculture, Forest Service 

White Mountain Apache Tribe 
 

 

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CONTENTS 

Executive Summary ........................................................................ 3 

Introduction ................................................................................. 5 

Independent Review Board ............................................................... 6 

 Team Members .................................................................... 6 

 Scope of Assignment ............................................................. 6 

 Process ............................................................................. 6 

Findings ............................................................................. ........ 7 

Recommendations .......................................................................... 9 

 Safety ............................................................................... 9 

 Communication and Coordination .............................................. 9 

 Management Oversight ........................................................... 9 

 Prescribed Fire Planning and Plan Review .................................... 10 

 Contingency Planning ............................................................. 11 

 Weather ............................................................................. 12 

Conclusions ................................................................................. 13 

Appendix .................................................................................... 14
 

 

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EXECUTIVE SUMMARY

On May 4, 2000, fire personnel at Bandelier National Monument, National Park Service, 

ignited the Upper Frijoles prescribed fire. Due to a slopover, the fire was declared a 

wildfire on May 5, 2000. By May 10, the fire now known as the Cerro Grande Fire had 

burned 18,000 acres and 235 homes in Los Alamos, New Mexico. By May 24, the fire 

had burned over 47,000 acres including portions of Los Alamos National Laboratory, the 

Santa Fe National Forest, the San Ildefonso Pueblo and Santa Clara Pueblo and other 

private property. 

Secretary of the Interior, Bruce Babbitt formed an interagency Fire Investigation Team 

on May 11, to review the planning and implementation of the Cerro Grande Prescribed 

Fire. The team submitted their report on May 18, 2000. The overall conclusion was that 

National Park Service personnel failed to properly plan and implement the Upper Frijoles 

Prescribed Fire. 

On May 18, 2000, Secretary Babbitt appointed an Independent Review Board to review 

the findings and recommendations presented in the Cerro Grande Prescribed Fire 

Investigation Report. 

The Independent Review Board based its recommendations on the Cerro Grande 

Prescribed Fire Investigation Report; conversations with key team members and other 

staff; and, review of videos and pertinent portions of policy, technical, and informational 

documents. 

The Board concludes that the findings and recommendations contained in the Cerro 

Grande Investigation Report are logical, valid conclusions – with the exception of the 

recommendation under Finding F. The National Weather Service did comply with 

existing policies and working agreements in providing weather information, contrary to 

the conclusion drawn from Finding F in the report. 

The Board developed additional recommendations in six categories that support the 

findings of the Investigation Team: 

• Safety 

All components of a prescribed fire plan must be followed to ensure that safety 

objectives are met. One individual should be designated with the sole responsibility 

for safety oversight during burn implementation. 

• Management Oversight 

Agency administrators are the key link in the success of the wildland fire 

management program. Their attitude and commitment to safety is critical. They 

must set the tone for serious, conscientious implementation of all components of a 
 

 

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prescribed burn plan and ensure linkages to other overarching plans and fire 

management policies 

• Communication and Coordination 

Substantial and continual coordination and cooperation must occur in planning and 

implementing fire management activities. 

• Prescribed Fire Planning and Plan Review 

Fire management plans and prescribed fire plans should be developed through an 

open collaborative process, affording opportunities for internal and external review 

prior to approval. 

Complexity rating systems should be consistent across agencies, recognizing 

geographical differences. Fire management personnel must be fully trained in the 

application of these systems. 

• Contingency Planning 

Contingency resources need to be defined; identified; their availability assured; and, 

their use described during the contingency planning and plan implementation process. 

Contingency resource costs must be included in the project cost. 

• Weather 

The National Wildfire Coordinating Group’s Fire Weather Working Team should 

review weather needs of wildland fire managers and the capabilities of the National 

Weather Service to ensure that necessary weather information is available. 

The Review Board believes that applying fire to the landscape is an essential tool for 

good resource management and at the same time is one of the most significant decisions 

resource mangers make. For it to be successful, it must be planned and implemented in 

an open, collaborative manner and approached with the seriousness and attention this 

type of inherently dangerous situation deserves. 
 

 

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INTRODUCTION 

On May 4, 2000, fire personnel at Bandelier National Monument, National Park Service, 

ignited the Upper Frijoles prescribed fire with an approved plan. Sporadic wind changes 

caused some spotting within the unit and a slopover on the upper east fireline. Because 

of the slopover, the prescribed fire was declared a wildfire at 1300 hours on May 5. The 

fire was contained on May 6 and early on May 7; however, on May 7, winds increased 

and caused the fire to move out of control onto the Santa Fe National Forest. On May 10, 

the prescribed fire, now called the Cerro Grande Fire, carried by high winds, entered Los 

Alamos Canyon. The towns of Los Alamos and White Rock were in the fire’s path, and 

18,000 residents were evacuated. By the end of the day on May 10, the fire had burned 

18,000 acres, destroyed 235 homes, and damaged other structures. The fire spread 

towards Los Alamos National Laboratory, and although fires spotted onto the facility’s 

lands, major structures were secured and no releases of radiation occurred. The fire 

burned other private land and portions of the San Ildefonso Pueblo and Santa Clara 

Pueblo Reservations. On May 24, the fire was 95% contained and had burned over 

47,000 acres. 

Secretary of the Interior, Bruce Babbitt, formed an Interagency Fire Investigation Team 

on May 11, to review the planning and implementation of the Cerro Grande Prescribed 

Fire. They submitted their report to Secretary Babbitt on May 18, 2000. The report 

found that federal personnel failed to properly plan and implement the prescribed fire. 

Secretary Babbitt also appointed an Independent Review Board to review the findings 

and recommendations presented in the Cerro Grande Prescribed Fire Investigation 

Report. 
 

 

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INDEPENDENT REVIEW BOARD 

Team Members:

The members of the Review Board were announced on May 18, 2000. 

The Board is an Intergovernmental Team composed of: 

Paul DeClay, Jr., Tribal Forest Manager, White Mountain Apache Tribe, Fort Apache 

 Indian Reservation, Whiteriver, Arizona 

Lyle Laverty, Regional Forester, US Forest Service, Rocky Mountain Region, 

 Denver, Colorado 

Michael Long, Assistant Director, State of Florida, Division of Forestry, 

Tallahassee, Florida 

Elaine Zielinski, Oregon/Washington State Director, Bureau of Land Management, 

 Portland, Oregon 

Scope of Assignment:

The Board’s task consisted of providing an independent review of the findings and 

recommendations of the Cerro Grande Prescribed Fire Investigation Team. The scope of 

the review was to validate that: 

• the Investigation Team asked the appropriate questions and talked to the key people 

involved in the incident; 

• the findings and recommendations flowed from the information presented; and, 

• the recommendations were feasible. 

 

In addition, the board should identify any additional recommendations from a policy and 

program perspective that would help to ensure that this type of incident would not occur 

in the future. 

The Board was not charged with addressing specific individual’s accountability, nor with 

recommending appropriate personnel actions. 

Process:

The Review Board used several processes in completing its assignment: 

• Reviewed the Cerro Grande Prescribed Fire Investigation Report of May 18, 

2000. 
 

 

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• Viewed the video of the summary of the findings and recommendations presented 

on May 18, 2000. 

• Viewed the video of the Cerro Grande Prescribed Fire Helicopter Overflight of 

May 16, 2000. 

• Interviewed the five member command staff of the Interagency Fire Investigation 

Team. 

• Interviewed key members of the Interagency Fire Investigation Team. 

• Interviewed key staff at the National Interagency Fire Center, in Boise, Idaho, 

representing US Fish and Wildlife Service and the National Park Service. 

• Consulted with technical advisers from the National Weather Service. 

• Reviewed the pertinent portions of policy, technical, and informational documents 

included in Appendix A. 

FINDINGS 

The Review Board believes that the Cerro Grande Prescribed Fire Investigation Report of 

May 18, 2000, is a valid report that met its objectives of determining: 

• If the Prescribed Fire Plan was adequate and complied with NPS guidance on 

policy and direction on fire management. 

• If the prescription, actions, and procedures set forth in the prescribed fire plan 

were followed. 

• If the prescribed fire training and experience of personnel involved were 

commensurate with agency qualification standards. 

• Recommendations to prevent similar future occurrences and improve program 

performance. 

The Board agrees that the findings and recommendations contained in the Cerro 

Grande Fire Investigation Report are logical, valid conclusions based on the 

information presented – with the exception of the recommendation under Finding F, 

p. 19. The National Weather Service (NWS) did comply with existing policies in 

providing weather information. The NWS does not routinely provide predicted winds 
 

 

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in the 3-5 day outlook due to inability to provide reliable information, because of 

constantly changing conditions. 

The Board developed additional recommendations that they believe further support 

the major findings of the Investigation Team. These recommendations fall into the 

following six major categories, and are discussed in the next section: 

- Safety 

- Communications and Coordination 

- Management Oversight 

- Prescribed Fire Planning and Plan Review 

- Contingency Planning 

- Weather 
 

 

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- 

RECOMMENDATIONS 

Safety: 

Issue: As stated in the Federal Wildland Fire Management Policy, firefighter and 

public safety is the first priority in every fire management activity. Prescribed fire 

plans should be developed to ensure that safety objectives are factored into every 

aspect of the plan. If components of the plan are not followed, the validity of the 

entire plan could be compromised, leading to unsafe conditions and safety 

violations. 

Recommendation 1. The agency administrator is responsible to ensure that all 

components of the plan are followed. The prescribed fire organization should have one 

individual designated with the sole responsibility for safety oversight during the 

implementation of the burn. 

Recommendation 2. The agency administrator must create a climate that promotes safety 

and accountability. The direction and tone the agency administrator sets is critical for 

making long-term institutional changes.

Communications and Coordination: 

Issue: Fire activity in any vegetation type does not recognize ownership boundaries. 

This activity could be a prescribed or wildland fire – human caused or lightning 

ignition source. Vegetation management requires extensive coordination among 

involved landowners. 

Recommendation. The Federal Wildland Fire Management Policy directs the Federal 

agencies to work together and include State, tribal, local government, and private 

landowners in planning and implementing their respective fire management programs. 

Coordination and cooperation are taking place to varying degrees within and among 

agencies and their partners. Agency administrators must ensure that their internal 

processes institutionalize expectations for substantial and continued coordination and 

cooperation. 

Management Oversight: 

Issue: Agency administrators must understand that the decision to use fire as a 

resource management tool is inherently dangerous. Because of this reality, every 

precaution must be secured before fire is introduced to the landscape, including 

thorough review of all appropriate documents. 

Recommendation. The agency administrator must be held responsible and accountable 

for ensuring that any wildland fire management or prescribed burning activity is in 

compliance with the Federal Wildland Fire Management Policy and the Wildland and 
 

 

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Prescribed Fire Management Policy. There must be clear linkages and consistency 

among the prescribed burn plan, the Fire Management Plan, the Land Management Plan, 

and the Federal Wildland Fire Management Policy. 

Issue: The Federal Wildland Fire Management Policy and its components are valid 

and provide an effective framework for guidance into the future. All agencies must 

have a clear understanding of the policy and a consistent approach to 

implementation. 

Recommendation. The management oversight team, which was established to ensure 

implementation and consistency in implementation of the Federal Wildland Fire 

Management Policy, should be re-chartered. This team should be requested to reevaluate 

the May 23, 1996 Implementation Action Plan, refine it and establish new deadlines for 

completion of the implementation strategies. 

Issue: The complexity of using fire in different geographic regions requires 

understanding the basic principles of prescribed burning and planning, as well as an 

understanding of the interaction of fuels, weather, terrain, and other local factors. 

Recommendation. The National Wildfire Coordinating Group’s Fire Use Working Team 

should review the training standards and experience requirements for prescribed fire 

personnel. Personnel responsible for planning and implementation of wildland fire 

management and prescribed fire must be qualified both in training and experience to 

handle the complexity of the burn they are assigned. 

Issue: Prescribed fire and wildland fire management programs are competing for 

budget and resources. 

Recommendation. Agencies must set priorities and establish criteria that allow for 

appropriate funding and resources to bring the wildland fuels into a manageable condition 

while still providing an adequate fire suppression response force. 

Prescribed Fire Planning and Plan Review

Issue: To effectively implement fire management policies and achieve resource 

management objectives, Fire Management Plans need to be prepared in a 

collaborative framework. This should include appropriate public involvement and 

review, commensurate with the significance of the decisions to be made. 

Recommendation 1. Fire management plans and prescribed burn plans should be 

developed and coordinated in an open collaborative process, consistent with the 

framework identified in the Federal Wildland Fire Management Policy. The Wildland 

and Prescribed Fire Management Policy prescribed fire planning section, Director’s 
 

 

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Order #18, and the NPS Reference Manual 18 should be revised to strengthen and reflect 

this essential change in approach to prescribed fire planning. If necessary, other agencies 

should revise their internal direction to reflect this change. 

Recommendation 2. In addition to the unit fire management officer and an appropriate 

off unit technically qualified reviewer, adjacent landowners should be afforded the 

opportunity to review the prescribed fire plan prior to approval. 

Issue: There are different prescribed fire complexity rating systems being used by 

different agencies. 

Recommendation 1. To facilitate interagency review and collaboration, Geographical 

Coordinating Groups should develop consistent interagency standards. The National 

Wildfire Coordinating Group should review these standards. 

Recommendation 2. Agency administrators must ensure that all fire planners are trained 

in implementing interagency geographical complexity rating standards. 

Contingency Planning:

Issue: Because of the potential for unintended consequences, prescribed fire is one 

of the highest-risk activities land management agencies undertake. Contingency 

planning, which includes identifying necessary resources should a planned ignition 

exceed prescription parameters, is an essential component of a burn plan. It 

appears that there is no commonly accepted definition of contingency resources 

among all agencies. 

Recommendation 1. All agency administrators, fire program managers and prescribed 

fire burn bosses must be familiar with the National Wildfire Coordinating Group’s report 

addressing Allocation of Resources. 

Recommendation 2. Geographic Coordinating Groups should first establish common 

definitions, then develop and implement a consistent allocation process clearly described 

in local operating plans. 

 

Recommendation 3. Contingency resources identified in the prescribed fire plan need to 

be ordered through normal wildland fire procedures to ensure their availability. 

Recommendation 4. During the “go/no go” decision the check list must be completed 

and the burn boss must affirm the availability of adequate contingency resources. 

Recommendation 5. If actions needed to keep the fire within project boundaries exceed 

predetermined parameters, contingency plans should indicate suppression actions as well 

as identifying required resources. Project burn plan budgets should reflect potential 

contingency expenses. 
 

 

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Weather:

Issue: General weather and spot weather forecasts are critical to the fire 

management program. If those agencies responsible for fire management programs 

are to provide for firefighter and public safety the fire managers must have the best 

available weather information to use in their decision process. 

Recommendation: The National Wildfire Coordinating Group’s Fire Weather Working 

Team should review the needs of the wildland fire managers and the capabilities of the 

National Weather Service to ensure that the necessary weather information is provided 

for firefighter and public safety. Upon completion of this review the National Wildfire 

Coordinating Group will provide a report of their findings and recommendations to the 

Secretary of the Interior, Secretary of Agriculture, and the Secretary of Commerce.
 

 

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CONCLUSIONS 

In addition to these topical recommendations, there are several overarching themes that 

the Review Board heard from individuals interviewed and appeared in much of the 

written material reviewed. These themes also seem to apply to other recent incidents. 

We would like to reiterate and support them in this report. 

• The Federal Wildland Fire Management Policy is a comprehensive, sound policy. 

• The prescribed burn program is an essential tool for good resource management 

and agencies have had many successes. 

• When agencies do fail, it is generally not because of a lack of adequate policy, 

standards and guidance, but a result of not following that guidance. Agencies 

write a plan, but do not live the plan. 

• The human factor is critical in determining success or failure. This includes the 

attitude, involvement, knowledge and experience of key individuals throughout 

this process. 

• Applying fire to the landscape is one of the most significant decisions resource 

managers make. Managers must approach the prescribed fire program as a 

potentially life and death situation, treating it with the seriousness and attention 

that type of situation deserves. 

 

• As land use patterns and ownership’s have become more complex, coordination 

among all the affected entities becomes more and more critical to the success of 

any land management activities, but particularly accomplishment of a prescribed 

fire program. 

• What happened with the Cerro Grande Prescribed Fire could happen again if 

changes are not put into place to ensure that agencies “live the plan.” 
 

 

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APPENDIX A 

INDEPENDENT REVIEW BOARD 

CERRO GRANDE PRESCRIBED FIRE 

1. Wildland Fire Management Plan – Bandelier National Monument 

Federal Wildland Fire Management – Policy & Program Review

2. Final Report – December 1995 

3. Implementation Action Plan Report – May 1996 

Wildland and Prescribed Fire Management Policy

4. Implementation Procedures Reference Guide – August 1998 

Implementation of the Federal Wildland Fire Management Policy

5. Allocation of Resources, Final Report to NWCG – June 1998 

6. Approval of Federal Fire & Aviation Leadership Council – July 1998 

National Park Service

7. Director’s Order #18: Wildland Fire Management 

 Reference manual #18: 

8. Chapter 6: Training, Qualifications and Certification 

9. Chapter 10: Prescribed Fire 

10. Chapter 11: Wildland and Prescribed Fire Monitoring 

National Weather Service:

11. Southwest Area Fire Weather Operating Plan – Apr 1999 

12. NWS Response to Interagency Report Findings and Conclusions 

13. NWS Operations Manual – Chapter References 

 

14. Southwest Area Mobilization Guide – 2000 

15. Santa Fe National Forest Dispatch Procedure 

16. Santa Fe National Forest Dispatch Log: 5/3/00 – 5/6/00 

Cerro Grande Incident

17. Cerro Grande Prescribed Fire Investigation Report – May 18, 2000 

18. Additional Information pertinent to the investigation – May 24, 2000 

 Al King, Mike Powell, Charisse Sydoriak & Roy Weaver 
 

 

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19. Response to Findings & Recommendations 

Paul Gleason, NPS – May 24, 2000 

20. Cerro Grande Helicopter Video – May 16, 2000 

21. Cerro Grande Prescribed Fire Investigation Team clarifies Weather Statement 

22. Lowden Ranch Prescribed Fire Review, Final Report – July 22, 1999 

23. Recommendations for the National Office 

24. Outlet Prescribed Fire, Grand Canyon National Park, 

 Investigative Team Report – May 22, 2000 

25. USDI News May 17, 2000 

 Secretary Babbitt Names Independent Panel 

26. US Dept of Commerce Memo 

 Assignment of technical advisors 

27. C-SPAN New Mexico Video