Fire Management Plan, May 2004 BLM – WY Northern Zone

i 

Fire Management Plan

Prepared For: 

United States Department of the Interior 

BUREAU OF LAND MANAGEMENT 

WYOMING NORTHERN ZONE 

101 South 23rd Street 

P.O. Box 119 

Worland, WY 82401 

307-347-5100 

http://www.wy.blm.gov 

May 04, 2004 

c. Equipment Rental Agreements 49 

d. Contract Suppression and Prescribed Fire Resources 49 

VI. Monitoring and Evaluation 50 

References 51 

List of Acronyms 52 

Glossary 53 

Attachment 1 WY Northern Zone Aviation Plan 56 

Attachment 2 WY Northern Zone Red Card Committee Charter 67 

Attachment 3-1 Condition Class Map 68 

Attachment 3-2 Table of WYNZ FMUs 69 

FMU Vegetation Types and Acres by Ownership Charts 

 Attachment 4-1 Absaroka FMU Chart 70

 Attachment 4-2 Foothills FMU Chart 71

 Attachment 4-3 Basin FMU Chart 72

 Attachment 4-4 Nowater FMU Chart 73

 Attachment 4-5 West Slope FMU Chart 74 

Attachment 5 M.I.S.T. Guidelines 75 

List of Figures 

Figure 1. WYNZ Fire management units by vegetative type 15

 Figure 2. Absaroka Front FMU Map 21

 Figure 3. Foothills Sagebrush FMU Map 24

 Figure 4. Basin Bottom FMU Map 27

 Figure 5. Nowater FMU Map 31

 Figure 6. West Slope Bighorn FMU Map 35 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

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I. Introduction 

a. Purpose and Need: 

The Fire Management Plan is designed to implement and achieve goals and objectives set 

forth in the Washakie, Grass Creek, and Cody Resource Management Plans. 

The Wyoming Northern Zone of the Bureau of Land Management (BLM) currently lies within 

the Big Horn Basin Fire Planning Unit. The Big Horn Basin Fire Planning Unit consists of the 

Big Horn National Forest, Shoshone National Forest, Wind River Indian Reservation Bureau of 

Indian Affairs, Bighorn Canyon National Recreation Area and the Northern Zone Bureau of 

Land Management. 

The Wyoming Northern Zone of the Bureau of Land Management (BLM) is responsible for 

managing approximately 3,345,000 acres of public lands, and the majority of Bureau of 

Reclamation land in the Big Horn Basin of Wyoming. Elevation varies from around 3,700 ft at 

the Big Horn Canyon Recreation Area to 11,000 ft at the upper end of Owl Creek in the South 

Western part of the Zone. The climate and precipitation vary with elevation, ranging from arid 

with 3 in. of precipitation in the valley bottom, to moister sub-alpine conditions with 22+ in. of 

precipitation. The majority of precipitation occurs in winter and spring; summers are generally 

warm and dry with intermittent thunderstorms. The fire history for 1992 to 2003 shows 71 

human-caused ignitions and 118 lightning-caused ignitions. 

The current fire management policy includes Appropriate Management Response (AMR) of 

wildfires for all lands within the Northern Zone. 

This FMP is also needed to comply with the 2001 Federal Wildland Fire Management Policy 

(FWFMP). The policy directs BLM Field Offices to have an FMP for all areas with burnable 

vegetation. 

“Fire Management Plans are strategic plans that define a program to manage wildland and 

prescribed fires based on an area’s Resource Management Plan (RMP). An FMP must provide 

for firefighter and public safety; include fire management strategies, tactics, and alternatives; 

address values to be protected and public health issues; and be consistent with resource 

management objectives, activities of the area, and environmental laws and regulations” 

(FWFMP, 2001). 

Major guiding principles of the FWFMP are: 

• Firefighter and public safety is the first priority in every fire management activity. 

• The role of fire as an essential ecological process and natural change agent will be 

incorporated into the planning process. 

• Fire Management Plans, programs, and activities support land and resource 

management plans and their implementation. 

• Sound risk management is a foundation for all fire management. 

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• Fire management programs and activities are economically viable, based on values 

to be protected, costs, and land and resource management objectives. 

• Fire Management Plans and fire management activities are based upon the best 

available science. 

• Fire Management Plans and fire management activities incorporate public health 

and environmental quality considerations. 

• Federal, state, tribal, local, interagency, and international coordination and 

cooperation are essential. 

• Standardization of policies and procedures among federal agencies is an ongoing 

objective. 

b. The FMP complies with the following Laws, Regulations, Policies, and Plans: 

Absaroka Front Habitat Management Plan (1988) 

Archaeological Resources Protection Act (ARPA; 1979) 

Brokenback Diversity Unit Analysis (1996) 

Clean Air Act (CAA; 1970) 

Cody RMP and EIS (1988) 

BLM Prescribed Fire Management (2000) 

Bighorn Basin Invasive Species Management Plan 

Endangered Species Act (ESA; 1973) 

Federal Land Policy and Management Act (FLPMA; 1976) 

Federal Wildland Fire Management Policy (FWFMP; 2001) 

Final EIS Vegetation Treatment on BLM Lands in Thirteen Western States (1991) 

West Slope, Grass Creek and Rattlesnake Mtn. Forest Management Activity Plans 

Grass Creek RMP and EIS (1996) 

Interim Management Policy and Guidelines for Lands Under Wilderness Review (1995) 

National Historic Preservation Act (NHPA; 1966) 

National Environmental Protection Act (NEPA; 1969) 

National Fire Plan (NFP), including the Cohesive Strategy (2000), and the 10 Year 

Comprehensive Strategy Implementation Plan (2002) 

Washakie RMP and EIS (1986) 

West Slope Habitat Management Plan (1984) 

This FMP is an adaptive document and will enable managers to respond to changing resource 

conditions. For example, an area currently identified as high priority for suppression and 

implementation of hazardous fuels reduction may be reprioritized in the future after successful 

mitigation treatments. An interdisciplinary team will conduct an annual review to ensure that the 

plan accurately reflects current resource conditions and priorities. Information gained through 

monitoring will be used to evaluate and improve fire management strategies. 

c. Collaborative Processes Used to Develop This Plan: 

The development of the Big Horn Basin FPU was accomplished by the Big Horn Basin Fire 

Planning Committee. The Big Horn Basin Fire Planning Committee consists of Chuck Russell 

NZ BLM FMO, Dave Sisk Shoshone NF FMO, Galen Roesler Bighorn NF FMO, and Tom 

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Corbin Regional BIA FMO. The planning committee has established a charter to outline 

responsibilities, goals and a timeline to implement landscape Fire Planning Analysis and Budget 

Tool. 

The Northern Zone FMP was developed by an interdisciplinary team consisting of fire and 

resource specialists. The team is comprised of a mix of fire staff and natural resource specialists 

from the Worland and Cody field offices. 

The Northern Zone FMP is based source documents that include the, West Slope Habitat 

Management Plan (1984), Absaroka Front Habitat Management Plan (1988), Brokenback 

Diversity Unit Analysis (1996), Washakie RMP (1986), Cody RMP (1988) and Grass Creek 

RMP (1986). 

The purpose of the team is to identify resource issues and areas of concern to be used in 

delineating landscape level geographic areas for fire management administration. Resource 

issues considered by the team include erodable soils; noxious weeds and invasive non-native 

plant species; special designation areas; wildlife habitat; threatened, endangered, and sensitive 

species and habitat; fish habitat and riparian areas; forest products; cultural resources and tribal 

treaty rights; visual quality; recreation and historic sites; fire ecology and occurrence; and 

socio-economic issues relevant to the community. Wildland-urban interface areas are also 

identified by the team. These issues were identified by a process that included a series of 

interdisciplinary, inter-agency, and government-to-government consultation. 

d. Authorities 

United States Department of the Interior Manual 910 

Bureau of Land Management Manual 9200 

2001 Update of the Federal Wildland Fire Management Policy 

Healthy Forest Restoration Act of 2003 

Office of Fire and Aviation Instruction Memorandum 2002-038. Interim Guidance for 

Completion of Fire Management Plan Revisions Using the Interagency Template, Attachment 1 

Washington Office Instruction Memorandum 2004-007. Land Use Plan and Implementation Plan 

Guidance for Wildland Fire Management 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

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e. Reviewers and Preparers of the Plan: 

Reviewers: 

Jack Mononi: Resource Management Specialist, BLM, Cody Field Office 

Steve Christy: Natural Resource Specialist, BLM, Worland Field Office 

Jim Gates: Forester, BLM, Worland Field Office 

Mike Blymyer: Field Office Manager, BLM, Cody Field Office 

Jeff Johnson: Outdoor Recreation Planner, BLM, Worland Field Office 

Bill Hill: Field Office Manager, BLM, Worland Field Office 

Dennis Saville: Wildlife Biologist, BLM, Cody Field Office 

David Wallace: Supervisory Range Land Management Specialist, Worland Field Office 

John Elliot: Range Land Management Specialist, Worland Field Office 

Mike Bies: Archeologist, Worland Field Office 

Brendan Cain: Acting Assistant Field Manager Resources 

Wyoming Game and Fish 

U.S. Fish and Wildlife Service 

Preparers: 

Eve Warren: Natural Resource Specialist, BLM, Worland Field Office 

Jim Wolf: Fuels Specialist, BLM, Worland Field Office. 

Jack Mononi: Resource Management Specialist, BLM, Cody Field Office 

Dennis Strange: Engine Module Supervisor, BLM, Cody Field Office 

Jim Gates: Forester, BLM, Worland Field Office 

Andy Rothleutner: Fuels Crew Supervisor, BLM, Worland Field Office 

L.J. Brown: Fire Operations Supervisor, BLM, Worland Field Office 

Ken Stinson: Fire Ecologist, BLM, Worland Field Office 

Chuck Russell: Fire Management Officer, Worland Field Office 

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II. Relationship of FMP to Land Management Planning and Fire Policy: 

a. National Fire Plan, Fire Management Implementation Plan for the BLM administered 

public lands in the State of Wyoming and the 2001 Federal Wildland Fire Policy. 

This FMP has been written to comply with the objectives of the NFP (National Fire Plan), Fire 

Management Implementation Plan for the BLM administered public lands in the State of 

Wyoming, and the 2001 Federal Wildland Fire Policy. The template used to develop this plan 

was provided by the Office of the BLM Director of Fire and Aviation to ensure consistency in 

fire management planning (IM OF&A 2003-038). Following this process enables wildland fire 

management goals and components to be coordinated across administrative boundaries on a 

landscape basis. The Interagency FMP template states that bureau or agency fire management 

decisions must be consistent or compatible across administrative lines, thus complying with a 

key principle of the NFP. 

“The National Fire Plan is a long-term investment that will help protect communities and natural 

resources, and most importantly, the lives of firefighters and the public. It is a long-term 

commitment based on cooperation and communication among federal agencies, states, local 

governments, tribes and interested publics. The federal wildland fire management agencies 

worked closely with these partners to prepare a 10-Year Comprehensive Strategy, completed in 

August 2001” (NFP, 2000). 

The NFP emphasizes: 

• Firefighting: Maintain a cost-effective level of preparedness in firefighting and 

prevention. 

• Hazardous Fuels: Invest in projects to reduce fire risk with focused effort in 

wildland-urban interface (WUI) areas. 

• Restoration/Rehabilitation: Rehabilitate fire-damaged wildlands and restore high-risk 

ecosystems. 

• Community Assistance: Work with communities to reduce the risks of catastrophic fire. 

• Accountability: Establish and maintain a high level of accountability including oversight 

reviews, progress tracking, and performance monitoring. 

b. Washakie RMP (1986), Cody RMP (1988), Grass Creek RMP (1996): 

The FMP implements all relevant resource and fire management direction found in the Washakie 

RMP (1986), Cody RMP (1988), and Grass Creek RMP (1986). 

c. Desired Future Conditions to be obtained through Fire Management 

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The desired future conditions of the lands managed within the Northern Wyoming Zone are 

based on findings from the three Resource Management Plans; Grass Creek, Washakie, and 

Cody RMPs, as well as the Northern Wyoming Zone RAMS (Risk Assessment Mitigation 

Strategies) Plans. An interdisciplinary team used this information together with NFP direction to 

identify priority vegetation types with historic fire regimes, where present day fire and fuels 

management could help shape and achieve these desired future conditions. 

In addition, current national fire management policy addresses the use of fire and other fuel 

treatments as change agents for ecosystem sustainability. These change agents serve to reduce 

the threat of catastrophic fire and the risk associated with suppressing these fires to firefighters 

and the general public. 

Through fuels treatments, the composition of forested land, rangeland, and their associated 

riparian systems should more closely mimic their natural range of variability. These ecosystems 

will be more likely to function in a healthy manner and should be less susceptible to catastrophic 

changes, including accelerated fire regimes. 

The desired future conditions described for the plant communities below are based on a 

cumulative review of the three land use plans in the zone and the Wyoming Guidelines for 

Managing Sagebrush Communities with Emphasis on Fire Management, November 15, 2002. 

They serve as a basis for fire and fuels management planning. Management actions which result 

in plant communities that are different from the desired future conditions described here should 

have a rational basis and be well documented. 

Basin Grassland/Shrub Communities 

The desired plant community is dominated by Wyoming Big Sagebrush. At the landscape scale 

the desired seral stages are; 

• 10% in early seral with 0-5% canopy cover 

• 25% mid seral with 5-15% canopy cover 

• 40% late seral with canopy greater than 15% 

• Generally the remaining 25% of the landscape is dominated by rock out crop and shallow 

soils which does not historically carry fire 

The above mix of seral stages should be maintained in a temporal and spatial mosaic. Vertical 

structure of the sagebrush community should be considered for wildlife species of importance. 

A healthy under story of cool season grasses and forbs is also desirable. 

Invasive non-native species such as cheat grass is not desired in the plant communities. 

Wyoming Guidelines for Managing Sagebrush Communities with Emphasis on Fire 

Management (11/15/02) WY IB 2003 – 009 will be utilized to establish management direction. 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

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Foothills-Mountain Grassland/Shrub Communities 

The desired plant community is dominated by Mountain Big Sagebrush. At the landscape scale 

the desired seral stages are; 

• 10% in early seral with 0-5% canopy cover 

• 25% mid seral with 5-20% canopy cover 

• 40% late seral with canopy greater than 20% 

• Generally the remaining 25% of the landscape is dominated by rock out crop and shallow 

soils which does not historically carry fire 

The above mix of seral stages should be maintained in a temporal and spatial mosaic. Vertical 

structure of the sage brush community should be considered for wildlife species of importance. 

A healthy under story of cool season grasses and forbs is also desirable. 

Where this plant community occurs in higher elevations less than 40% late seral Mountain Big 

Sagebrush may be acceptable 

Invasive non-native species such as cheatgrass is not desired in the plant communities. 

Wyoming Guidelines for Managing Sagebrush Communities with Emphasis on Fire 

Management (11/15/02) WY IB 2003 – 009 will be utilized to establish management direction. 

 Woodland Communities 

On shallow soils the desired plant community is dominated by limber pine and juniper woodland 

communities. Where these woodland species occur on deeper soils the desired plant community 

is the same as the foothills-mountain grassland/shrub communities. 

Ponderosa Pine / Lodgepole Pine / Mixed Conifer / Deciduous Communities 

Structurally diverse stands with endemic levels of native insects and diseases are desired. These 

stands should be capable of withstanding drought, low intensity fire, and other natural stress 

factors while maintaining long-term resistance and resilience to the subsequent insect and disease 

attacks. 

The spread of native invasive species, such as juniper, should be minimal in areas historically 

dominated by other species. Non-native invasive species, such as cheatgrass or Russian olive, 

are not desirable. 

 Aspen clones, across the landscape, should be structurally diverse and have a representative 

composition of all seral stages from suckers to mature trees. Individual clones should progress 

through their successional stages uninhibited and at maturity regenerate before clone vigor is 

significantly decreased. It is desirable to maintain or enhance the acreage and vigor of aspen 

clones. 

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Desired stand composition and stocking would be consistent with site-specific objectives for 

resource management. 

 Riparian Communities 

Riparian communities should be dominated by native riparian vegetative species that facilitate 

and enhance the storage and release of water through the system. These vegetative species 

should be representative in composition, and structurally diverse. These communities, in 

general, should be wet and fairly resistant to fire. 

Invasive Species 

Prevention measures for noxious and other invasive species will be part of all fire related 

activities. Weed risk factors and prevention practices will be part of the Resource Advisors 

recommendations to Incident Management and Fire Rehab teams. All off-road equipment will 

be cleaned (power or high-pressure cleaning) of all mud, dirt, and plant parts before moving into 

relatively weed-free areas at moderate or high-ecological risk. (Does not apply to service 

vehicles that will stay on the roadway traveling frequently in and out of the project area.) 

Equipment cleaning sites will be monitored for weeds and treated if they are established. 

Maintain helibases, camps and staging areas in a weed-free condition. Prescribed fires will be 

planned so as to avoid ignition and burning in areas at high risk for weed establishment or spread 

due to fire effects. During fire rehabilitation, disturbed soil in relatively weed-free areas at 

moderate or high risk to weeds will be monitored and reseeded if necessary. Further guidance is 

found in the resource management plans covering this fire management zone. 

III. Wildland Fire Management Strategies: 

a. General Management Considerations:

 i. Overview of Fire Management Program: 

The Northern Zone has developed a Wildland Fire Management Program consisting of 4 

components: Appropriate Management Response Suppression, Prescribed Fire, Non-fire Fuels 

Treatment, and Rehabilitation. Whenever possible, implementation procedures will follow 

interagency guidelines developed to standardize fire management planning. The program is 

governed by the following principles, derived from the Cody RMP, Washakie RMP, Grass Creek 

RMP, RMP Amendments, and current NFP guidance. 

• Manage fire and fire suppression activities so as to minimize risks to public and 

firefighter safety. 

• Suppress all undesired fires in a cost-effective and prudent manner to protect the 

public, private property, and cultural, historic, recreational, or ecological resources. 

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• Protect and/or maintain municipal watersheds and special status species and 

habitats. 

• Consider the economic effects of alternative fire management practices. Promote 

local involvement and economic benefits from fuels reduction programs. 

• Continue to collaborate with local partners to assess WUI areas, update existing 

mitigation plans, and implement a prevention and education program. 

• Maintain interagency cooperation to facilitate coordinated fire management 

activities across administrative boundaries. This includes utilizing the Interagency 

Standards for Fire and Aviation Operations (Red Book). 

• Fire management activities will emphasize the maintenance and restoration of 

native plant species and communities. 

• Fire management objectives and activities will support BLM fire policy (National 

Fire Plan, Fire Management Implementation Plan for the BLM administered public 

lands in the State of Wyoming and the 2001 Federal Wildland Fire Policy) and Zone 

management plans, analyses, and assessments. 

ii. Field Office Considerations: 

The Northern Zone currently has interagency cooperative agreements with the Big Horn National 

Forest, Shoshone National Forest, Wind River Indian Reservation and Big Horn National 

Recreation Area. Fire suppression operations are coordinated by an interagency dispatch center, 

the Cody Interagency Dispatch Center (CDC). 

The Northern Zone will continue interagency and local cooperation to set priorities for fire 

management planning, preparedness, prevention, suppression, fire use, restoration and 

rehabilitation, monitoring, research and education. Furthermore, this interagency cooperation 

will ensure accountability by instituting meaningful performance measures and monitoring 

results. 

b. Fire Management Goals: 

As stated in the Washakie, Grass Creek and Cody Resource Management Plans, objectives 

include: 

• Protect resource values, property and human life from loss due to wildfire 

• Use prescribed fire to meet other resource management objectives (i.e. wildlife habitat or 

range condition) 

The intent of this FMP is to recommend fuel treatments and suppression tactics in order to 

achieve RMP objectives. 

Fire management goals outlined in this FMP conform to NFP goals, as specified in the 10-year 

Comprehensive Strategy (USDA, USDI, 2001). 

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The primary goals of the 10-year Comprehensive Strategy are: 

• Improve prevention and suppression 

• Reduce hazardous fuels 

• Restore fire-adapted ecosystems 

• Promote community assistance 

Condition class is a description of ecosystem health defined in the Cohesive Strategy as follows: 

• Condition Class 1. For the most part, fire regimes in this Fire Condition Class are 

within historical ranges. Vegetation composition and structure are intact. Thus, the risk 

of losing key ecosystem components from the occurrence of fire remains relatively low. 

• Condition Class 2. Fire regimes on these lands have been moderately altered from 

their historical range by either increased or decreased fire frequency. A moderate risk of 

losing key ecosystem components has been identified on these lands. 

• Condition Class 3. Fire regimes on these lands have been significantly altered from 

their historical return interval. The risk of losing key ecosystem components from fire is 

high. Fire frequencies have departed from historical ranges by multiple return intervals. 

Vegetation composition, structure, and diversity have been significantly altered. 

Consequently, these lands verge on the greatest risk of ecological collapse. 

Fire regimes are generalized descriptions of the role fire plays in an ecosystem. They are 

characterized by fire frequency, predictability, seasonality, intensity, duration, and scale 

(patch size), as well as regularity or variability. 

A coarse-scale landscape level assessment of condition class for the Northern Zone based on 

University of Wyoming GAP data (1994), ground truthing, RAMS data, and expert input, is 

shown in Attachment 2. Currently, 90% of vegetation communities within the Northern Zone 

are in Condition Class 2 and 3. The effect of implementing resource management objectives 

identified in this document will be to move more of the Northern Zone area towards Condition 

Class 1 and 2 than current landscape level analysis shows. The movement of high priority, high 

condition class areas to a lower condition class are one of the key performance measures 

identified in the 10-year Comprehensive Strategy Implementation Plan (2002). 

c. Wildland Fire Management Options: 

In the application of all fire management options and activities, ecosystem sustainability 

including its interrelated ecological, economic, and social component will be realized on a 

continual basis. 

Suppression: 

This plan will guide the Northern Zone in employing a flexible suppression strategy based on 

safety and resource management considerations identified in the Cody RMP (1988), Grass Creek 

RMP (1996), and Washakie RMP (1986). It will also enable the Northern Zone to prioritize 

suppression in the case of two or more fires burning simultaneously. An interdisciplinary team 

has identified areas of specific resource concern where immediate suppression will be the 

appropriate response. We also identified areas that will be lower priority for suppression. These 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

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have been incorporated into the Fire Management Unit (FMU) descriptions found in Section IIId. 

In addition, a Wildland Fire Situation Analysis (WFSA) will be produced for all wildland fires 

that transition into extended attack (Type 4 going to Type 3). 

General Management Guidelines for Suppression: 

• All ignitions will be managed using AMR. 

• Priorities will be firefighter safety, the protection of life and property, and 

maintenance of resource values. 

• Suppression efforts in all WSA’s shall emphasize maintenance of wilderness 

qualities (see RMP direction for fire management within the WSA) 

• Where appropriate, Minimum Impact Suppression Tactics (MIST) will be used to 

protect sensitive plant species, highly erodible soils, cultural resources, riparian 

habitat conservation areas, to prevent the spread of cheatgrass and noxious weeds. 

• Appropriate Resource Specialists will be consulted to ensure that resource 

management concerns are adequately addressed and that necessary mitigation of 

suppression activities occurs. They will initiate Emergency Consultation with the 

USFWS or NOAA Fisheries whenever suppression activities impact threatened and 

endangered species habitat. 

• Mechanized equipment will not be used in any Areas of Critical Environmental 

Concern (ACEC) and in areas closed to off-highway vehicle (OHV) use without Line 

Officer approval. 

• Aerial application of foam or retardant should not be used within 300 ft of any body 

of water, including lakes, rivers, streams, and ponds. Exceptions would be made to 

protect life or property, firefighter safety, and when potential damage to natural 

resources outweighs possible loss of aquatic life. In case of accidental exposure, the 

BLM Field Manager will be contacted immediately. 

• In order to minimize risk to firefighters and to reduce wildland fire suppression 

costs, fires may be allowed to burn up to natural fuel breaks where and when it is 

appropriate and beneficial to resource values. 

• To minimize spread of noxious weeds, equipment used for suppression should be 

cleaned before arriving on-site. Staging areas and fire camps should not be located 

on sites with noxious weed infestations. 

• The WY BLM Northern Zone Archaeologists will be notified of any cultural 

resources encountered during suppression activities. 

• Developed recreation sites and structures on public lands will be protected. 

• When aerial resources are used water will not be applied to rock surfaces known or 

suspected of having rock art. 

• When aerial resources are used retardant applications will avoid rock surfaces 

known or suspected of having rock art by a minimum of 300 ft. In case of accidental 

exposure, the BLM Field Manager will be contacted immediately. 

• Where MIST is not used an Archaeologist will be ordered at the same time that 

earth moving machinery is ordered onto an incident. 

• Where appropriate, Minimum Impact Suppression Tactics (MIST) will be used to 

protect cultural resources, and to protect historic viewshed quality along the Nez 

Perce Trail (FMUs Absaroka Front and Foothills Sagebrush), and the Bridger Trail 

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(FMUs Nowater, Foothills Sagebrush, Basin Bottom) (see MIST guidelines, 

Attachment 4.) 

These guidelines apply to all FMUs and are supplemented by specific constraints applicable to 

each FMU, as stated in the FMU descriptions in Section IIId. 

Wildland Fire Use: 

The current Resource Management Plans do not allow for wildland fire use based on the mixed 

land ownership patterns and large amount of livestock grazing in the planning area. Wildland 

fire use will be addressed in the new zone-wide RMP that addresses both the Worland and Cody 

field offices. The RMP planning process is scheduled to begin in October of 2006. 

Prescribed Fire: 

Prescribed fire is defined as management ignited fire that is used to alter, maintain, or restore 

vegetative communities to achieve desired resource conditions. It is also used to protect life, 

property, and values that would be degraded by wildland fire (USDI BLM, 2000). 

The Northern Zone will use prescribed fire and other vegetation treatments to support objectives 

identified in the Cody RMP (1988), Grass Creek RMP (1996), and Washakie RMP (1986). 

Section IIb of this FMP identifies priority vegetation types where prescribed fire and/or 

mechanical treatments will be used to achieve resource objectives. Section IIId of this plan 

provides recommendations for FMUs, including numbers of acres to be treated over the next 10 

years. Specific geographic areas within FMUs will be prioritized for treatment based on NFP 

direction. 

In order to implement and document a prescribed fire project, NEPA compliance requires an 

interdisciplinary team to conduct site-specific analysis, including Endangered Species Act (ESA) 

and National Historic Preservation Act (NHPA) consultation. Following current BLM 

Prescribed Fire Management Guidelines, the Northern Zone will then produce a Prescribed Fire 

Plan. The Prescribed Fire Plan is a site-specific implementation document containing specific 

resource objectives, prescription criteria, and provisions for suppression if the fire escapes 

prescription. 

Non-Fire Fuels Treatment: 

Non-fire fuels treatment is an essential component of the Northern Zone’s fire management 

program. It will be used in appropriate areas in conjunction with, prior to, or as an alternative to 

prescribed fire. Treatment will be tailored to specific resource management objectives such as 

hazardous fuels reduction, restoration of priority vegetation types, and noxious weed 

management. Treatment options include that include various silvicultural treatments, building 

fuel breaks, removing material by chipping slash piles or making it available for firewood, and 

chemical and biological treatments. Whenever possible, the treatment method will be designed 

to provide local economic benefits. Examples include post and pole harvesting, provision of 

firewood, and awarding contracts for the treatment of noxious weed infestations. NEPAFire Management Plan, May 2004 BLM – WY Northern Zone 

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compliant analysis, ESA, and NHPA consultation will occur before implementation of sitespecific projects. 

Rehabilitation: 

Rehabilitation activities can be divided into short and long-term actions. Short-term actions 

mitigate the effects of fire suppression activities (e.g., dozer lines and helispots). The 

appropriate Resource Specialist will direct necessary mitigation actions. 

Long-term rehabilitation actions are undertaken to repair lands damaged by wildland fire that are 

unlikely to recover naturally. The Northern Zone will evaluate all areas burned by wildland fire 

to determine whether post-fire rehabilitation is necessary to prevent extensive resource damage. 

Rehabilitation will be undertaken for reasons such as the prevention of erosion and sediment 

impacts to crucial fisheries habitat, mass wasting onto private property, invasion by noxious 

weeds, and restoration of a municipal watershed. Rehabilitation actions undertaken by the 

Northern Zone will emphasize the maintenance and restoration of native plant species and 

communities. In the absence of a Normal Fire Rehabilitation Plan, a site-specific Emergency 

Stabilization and Rehabilitation (ESR) Plan will be prepared, following guidance in the 

Interagency Burned Area Emergency Stabilization and Rehabilitation Handbook (USDA, USDI, 

2002). This will include NEPA-compliant environmental analysis. 

d. Wildland Fire Management Strategies: 

In order to facilitate fire management planning, the Northern Zone has delineated 5 separate 

FMUs (Figure 1). These units contain Bureau of Land Management, Bureau of Reclamation, 

Department of Defense, Forest Service, National Park Service, state, and private land. The 

FMUs are based on similar risk ratings for ecological degradation and opportunity for 

improvement through program management. The FMUs are not the same units used to analyze 

the Northern Zone’s Interagency Initial Attack Assessment (IIAA)/National Fire Management 

Analysis System (NFMAS). Each FMU description on the following pages contains a 

breakdown of vegetation types into broad categories, based on University of Wyoming gap data 

(1994) and ground truthing. Attachment 3 contains vegetation tables for each FMU, showing 

acreages of specific cover types by land ownership within each category. 

The general management guidelines for fire suppression in Section IIIc, page 14 apply to all 

FMUs and specific constraints applicable to individual FMUs are identified wherever necessary. 

North Zone Fire Management Units (FMUs) 

The planning area (Wyoming North Zone) was divided into five fire management units based on 

a combination of wildfire AMR and resource management concerns. Fire management 

objectives and strategies were developed by an interdisciplinary team for each FMU. 

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Resource objectives for FMUs containing sage grouse habitat will be developed by an 

interdisciplinary team on a site specific basis. These objectives will incorporate the Wyoming 

Guidelines for Managing Sagebrush Communities with Emphasis on Fire Management (2002). 

The objectives will also incorporate data being collected for both landscape and stand fire regime 

and condition classes (FRCC) of sage-grouse habitat. 

Wildland fire use was not discussed for any of the FMUs. The current RMP’s do not allow for 

wildland fire use based on the mixed land ownership patterns and large amount of livestock 

grazing in the planning area. Wildland fire use will be addressed in the new zone-wide RMP that 

addresses both the Worland and Cody field offices. The RMP planning process is scheduled to 

begin in October of 2006. 

Number of acres to be treated by vegetation type per decade for each FMU have been estimated 

and are found in the description of each FMU. These numbers of acres are derived in part from 

the Northern Wyoming Zone Risk Assessment and Mitigation Strategies Plan (March 2003) and 

review of wildfire and prescription fire activity of the FMU between 1980 and 2002. However, 

an unforeseen event such as a large wildfire, rapid expansion of an invasive species, or 

construction of a new subdivision could create the need to reevaluate objectives and strategies 

for an FMU. For example, a large wildfire might appear to meet or exceed the planned acreage 

for prescribed and non-fire fuels treatments in an FMU. Under these circumstances, an 

interdisciplinary review of the effects of the wildfire could conclude that the wildfire did not 

meet resource management objectives for a variety of reasons. In such a case, it would be 

necessary to reevaluate desired future condition goals for a particular plant community and the 

fire management objectives and strategies for a given FMU. 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

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Figure 1. WYNZ Fire Management units by vegetative type 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

15 
A note on “sagebrush shrub critical habitat”: 

Sagebrush critical habitat is composed primarily of Wyoming Big sagebrush and secondarily of 

perennial forbs and grasses. Some of the areas delineated on the FMU maps as Critical Sage 

Habitat were absent from the 1994 University of Wyoming GAP data and consequently ground 

truthed by our wildlife biologists. The criteria used to label these Wyoming Big sagebrush 

dominated areas as critical are 1) their position within lower precipitation zones, 2) the 

significant role they play in sequestering precipitation under the sagebrush canopy, 3) the 

significant role they play in providing food and/or cover for antelope, deer, insects, lagomorphs, 

migratory passerines, and sage grouse, 4) the presence of active sage grouse leks within them, 

and 5) the use of these areas for sage grouse nesting and brood rearing. Our wildlife biologists 

hypothesize that they are also used as both brooding and rearing grounds and are in the process 

of collecting data to support or refute these hypotheses. 

The sagebrush found in the areas labeled as Foothill Mountain sage and shrub is Mountain Big 

sagebrush and does not meet the criteria for being critical. It is found in higher precipitation 

zones, regenerates much faster than does Wyoming Big sagebrush, and typically plays a smaller 

role as food and cover for big game and/or sage grouse. Lastly, few active or historical leks are 

found within the Mountain sagebrush type within the FMUs. 

In the following FMU descriptions, the terms Fire Regime and Condition Class are used 

extensively. Please refer to the following tables of each for a description and the implications of 

each term. The fire regimes and condition classes of the Wyoming North Zone fire management 

units are given and notated following the descriptions. 

Fire Regime defined - Periodicity and pattern of naturally occurring fires in a particular area or 

vegetative type, described in terms of frequency, biological severity, and area of extent. 

Group Frequency Severity 

I 0-35 years Low 

II 0-35 years Replacement 

III 35-100+ Mixed 

years 

IV 35-100+ Replacement 

years 

V 200+ years Replacement 

The fire regimes of Wyoming North Zone fire management units are as follows: 

Vegetation Class Fire Regimes 

Desert salt shrub IV 

Foothill Mountain sage and shrub III 

Juniper and Limber pine III 

Mixed conifer, Lodgepole pine, and riparian aspen I, III, and IV 

Ponderosa pine I 

Sagebrush shrub critical habitat III 

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Condition Class defined - Used to classify the condition of a vegetative biome in regards to 

natural fire disturbance. 

Class Description 

1 Fire regimes are within an historical range and the risk of losing key ecosystem components is low. Vegetation 

attributes (species composition and structure) are intact and functioning within historical range. 

2 Fire regimes have been moderately altered from their historical range. The risk of losing key ecosystem 

components is moderate. Fire frequencies have departed from historical frequencies by one or more return 

intervals (either increased or decreased) resulting in moderate changes to one or more of the following: fire size, 

fire intensity and severity, and landscape patterns. Vegetation attributes have been moderately altered from their 

historical range. 

3 Fire regimes have been significantly altered from their historical range. The risk of losing key ecosystem 

components is high. Fire frequencies have departed from historical frequencies by multiple return intervals. This 

results in dramatic changes to one or more of the following: fire size, fire intensity and severity, and landscape 

patterns. Vegetation attributes have been significantly altered from their historical range. 

Condition classes of vegetative types of the Wyoming North Zone fire management units are 

shown in Attachment 2, Condition Class Map and Table of WYNZ FMUs. 

Areas classified as condition class 3 have either been invaded by taxa that result in increased fire 

events or have missed multiple fire events. As examples, the area of condition class 3 in the 

Nowater FMU has been invaded by downy brome (Bromus tectorum) and the frequency of fires 

has increased to every 2 to 8 years. Alternatively, most Ponderosa pine stands in the West Slope 

Bighorn FMU have missed 3 or more fire intervals in the past 100 years. 

All cottonwood riparian areas in the Wyoming North Zone are being invaded by Tamarisk and 

Russian olive. These invasive species have altered the historical fire regime. Most of these 

altered areas are located within close proximity to urban interface communities and rural homes. 

Fires within these areas are difficult to extinguish due to large amounts of fine flashy fuels, a 

heavy dead component, and continuous fuel beds. High frequency, high severity fires kill the 

native cottonwood species and favor the success of Tamarisk and Russian olive that thrive after 

fire. Because of this invasion and altered fire frequencies these areas, too, are in condition class 

3. 

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Absaroka Front FMU 

Description 

Location- Absaroka Front FMU is located on the west side of the Big Horn Basin. It extends 

from the Montana border in the north to the southern boundary of the Wyoming North Zone at 

the Wind River Indian Reservation. It encompasses portions of the Shoshone, Greybull, and Big 

Horn Rivers’ watersheds. It covers approximately 1,129,942 acres which includes 380,320 acres 

of BLM land (including 7,781 acres of BOR land for fire administration), 6,195 acres of Forest 

Service land, 542,056 acres of privately owned land, and 138,432 acres of State land. 

Characteristics- The Absaroka Front FMU has a general topography of east slopes from the 

Absaroka Range with foothills and long drainages. Its elevation ranges from above 11,000 to 

5,000 ft. The vegetation can be divided into six subtypes as follows: 4% desert salt shrub, 19% 

foothill Mountain Sagebrush and shrub, 14% juniper and limber pine, 4% mixed conifer, 

including lodgepole pine and riparian aspen, 53% sagebrush shrub critical habitat, and 6% of 

acres that include barren areas, alpine tundra, greasewood flats, and crop land. Invasive plant 

taxa include Canada thistle, cheatgrass, hounds tongue, Musk thistle, spotted knapweed, 

tamarisk, white tip, and white top. Air quality meets National Air Quality Standards. 

The mountain topography that characterizes the Absaroka Front FMU supports soils formed over 

volcanic bedrock, though soils derived from shale and sandstone are just as common. Due to the 

higher elevations and increased precipitation of this FMU, the soils are typically well developed 

and productive. However, these attributes also make these soils susceptible to erosion. The 

erosion hazard for most of the FMU is high and extreme. Based on Forest Service Water 

Erosion Prediction Project (WEPP) interface, predicted erosion values following wildfire 

average 9 tons per acre and could exceed 45 tons per acre in a worst case scenario. 

Fire History- From 1992-2003 the FMU had 41 fires for a total of 17,560 acres. Approximately 

80% of these fires were ignited by lightning with the remainder human caused. Fire behavior in 

this FMU can range widely depending on microclimate, fuel type, and land use. The higher 

elevations normally have decreased fire spread because of greater relative humidity, especially if 

lightning strikes are accompanied by rain. Land use, i.e., livestock grazing vs. recreation, 

influences fire spread in lower elevations and can range from fast moving grass fires to slower, 

more intense shrub and juniper fires. 

Values at Risk- Owl Creek WSA is found in the southern part of this FMU as are two ACECs-- 

one located on Carter Mountain and the other located in the Owl Creek Drainage: The Carter 

Mountain ACEC has been implemented to protect alpine tundra and fragile soils and Owl Creek 

ACEC has been implemented to ensure wildlife corridors, scenic values, and fragile 

environments. 

Wildlife values at risk include crucial habitat for deer, elk, and Bighorn sheep. Absaroka Front 

FMU also contains habitat for threatened and endangered Grizzly Bear and Canadian Lynx and 

the sensitive Sage Grouse and Mountain Plover, and Yellowstone cutthroat trout. Over 26,000 

acres of commercial forest land are found in the Absaroka Front FMU as are oil and gas 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

18 
improvements and mining operations. Recreation values include campgrounds, developed 

trailheads, boat ramps, and fishing access points. Range improvements and livestock forage are 

present as are pre-historic and historic cultural sites including cabins, fences, traps, and pole 

structures. 

Communities at Risk- Absaroka Front FMU contains six communities identified as at risk. The 

Wapiti/Rattlesnake Subdivision, South Fork Shoshone River Subdivision, Cedar Mountain, and 

Sheep Mountain communities have a composite rating of High. Cottonwood Acres and Sage 

Valley Subdivision have a composite rating of Moderate. Mitigation plans are being developed 

for each of these communities and will be implemented when completed. 

Fire Management Objectives 

Suppression Objectives: 

• Attempt to protect all WUI from loss or damage within the FMU. 

• Attempt to provide protection to cultural resources in area. 

• In desert cottonwood riparian areas and all perennial stream riparian areas, the goal 

would be that wildland fires would be confined or contained to less than 10 acres under 

moderate to high fire intensity levels. 

• Attempt to prevent wildland fire from spreading to conifer/Lodgepole pine woodland and 

riparian aspen. 

• In Sage shrub critical habitat wildland fires will be confined/contained to less than 100 

acres 90% of the time, or no more than a loss of 5% of the total FMU’s burnable acres. 

Fire Use and Prescribed Fire Objectives: Fuel treatments will be designed to reduce dense 

even- age stands of sagebrush, reduce juniper and limber pine invasion into sagebrush and 

riparian areas, and reduce the heavy fuel buildup that has resulted from pine beetle infestation 

and fire suppression. Prescribed fire will be used in conjunction with timber harvest and 

mechanical treatments to rejuvenate aspen stands. 

Planned Fuels Treatments by Vegetative Class: Approximately 25,000 acres are planned to 

be treated in the Absaroka Front FMU over the next 10 years. These acres include 1000 of 

mixed conifer/Lodgepole pine/Woodland/Riparian aspen, 10,000 of juniper/limber pine invasion 

of Foothill mountain sagebrush/shrub, and 14,000 acres of Foothill mountain sagebrush/shrub. 

Non-Fire Fuels Treatment Objectives: Multi staged treatments will be done to accomplish 

specific area goals, such as juniper stand reduction to encourage aspen stand rejuvenation. 

Post Fire Rehabilitation and/or Restoration Objectives: Aggressive post-fire rehabilitation 

and restoration of wildfires will be done to promote native plant community reestablishment and 

soil stabilization. 

Community Protection/Community Assistance Objectives: The communities of 

Wapiti/Rattlesnake Subdivision, South Fork Shoshone River Subdivision, Cedar Mountain, and 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

19 
Sheep Mountain are all part of a current risk and mitigation review. Upon completion of this 

review mitigation plans will be implemented. Mitigation plans need to be formed for the 

communities of Cottonwood Acres and Sage Valley Subdivision. 

Non-fire Fuels Treatments - The implementation of non-fire fuels treatments may be 

considered as needed by site-specific plan. 

Restoration and Rehabilitation - Restoration and rehabilitation will emphasize the reestablishment and perpetuation of habitat diversity. 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

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Figure 2. Absaroka Front FMU 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

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Foothills Sagebrush FMU 

Location – Foothills Sagebrush FMU is located in the interior portion of the Bighorn Basin. Its 

boundaries are defined by the sagebrush/grassland foothills of Owl Creek with Carter and the 

Absaroka Mountains on the western edge. It encompasses portions of the Greybull, Shoshone, 

and Bighorn Rivers’ watersheds. It includes parts of Hot Springs, Park, Big Horn, and Washakie 

Counties. It covers approximately 1,318,566 acres which includes 790,157 acres of BLM land 

(including 55,112 acres of BOR land for fire administration), 71,014 acres of state land, and 

402,283 acres of privately owned land. 

Characteristics – The Foothills Sagebrush FMU has a general topography consisting of 

numerous long drainages separated by lower foothills. Elevations in this FMU range from above 

6000 ft to 3600 ft. The vegetation can be divided into six subtypes as follows: 37% desert salt 

shrub, 0.25% Foothill Mountain sagebrush and shrub, 0.50% juniper and limber pine, 1.25% 

mixed conifer, including lodgepole pine and riparian aspen, 48% sagebrush shrub critical habitat, 

and 13% of acres that include barren areas, greasewood flats, and crop land. Invasive plant taxa 

include black henbane, cheatgrass, Canada thistle, hounds tongue, Musk thistle, Russian and 

spotted knapweed, tamarisk, white tip, and white top. Air quality meets National Air Quality 

Standards. No Federally listed threatened or endangered species have been identified for the 

Foothills Sagebrush FMU. 

The Foothills Sagebrush FMU is characterized by dissected, rolling foothills topography. Its 

soils formed over interbedded sandstone and shale. Moderately high precipitation, 10 to 14 

inches per year, promotes productive soils. The erosion hazard ranking for river bottoms and 

benches is slight, while that for the steeper badland area is high. Predicted erosion values, based 

on Forest Service WEPP interface, for the sagebrush dominated communities averages 4.5 tons 

per acre and could be as high as 20 tons per acres in a worst case scenario. 

Fire History – Fire frequency, size, and intensity in this FMU have all been low historically: 

between 1992 and 2003 twenty-two fires totaled 382 acres. Thirty-five percent of fires were 

lightning ignitions and 65 % human caused. Fire spread has occurred when rains did not 

accompany lightening ignition in early summer when sagebrush has higher fuel moisture 

content. Areas vegetated with invasive cheatgrass have had fast fire spread but with limited 

movement into sagebrush critical habitat. 

Values at Risk – Wildlife values at risk include crucial sage grouse, mule deer, and antelope 

habitat. Oil and gas improvements and pre-historic and historic cultural sites are present. 

Historically, wildfires occurred at return intervals of 32-70 years in sage brush (Artemisia sp.) 

vegetation types. However, the frequency and size of wildfires within the zone are considerably 

higher than historical levels. Cheat grass matures earlier than native species and provides easily 

ignited fuel that promote a rapid rate of fire spread. Greater fire frequencies occur which cause a 

lower species richness in native communities and increase the relative frequency of cheat grass. 

Communities at risk – Four communities are recognized as at risk: Thermopolis, Sage Valley 

Subdivision, Oregon Basin, and Silvertip/Elk. 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

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Fire Management Objectives 

Suppression Objectives: 

• Attempt to protect all WUI from loss or damage within the FMU. 

• Attempt to provide protection to cultural resources in area. 

• In desert cottonwood riparian areas and all perennial stream riparian areas, the goal 

would be that wildland fires would be confined or contained to less than 10 acres under 

moderate to high fire intensity levels. 

• In Sage shrub critical habitat wildland fires will be confined/contained to less than 100 

acres 90% of the time or no more than a loss of 5% of the total FMU’s burnable acres. 

Fire Use and Prescribed Fire Objectives: Use prescribed fire and mechanical/chemical 

treatments to maintain, enhance, and/or rehabilitate sagebrush shrub critical habitat vegetation 

type acreage with emphasis on limiting the spread of cheatgrass. 

Planned Fuels Treatments by Vegetative Class: Eight thousand acres of Sage Shrub critical 

habitat will be treated in the next decade. There are no planned treatments of any other 

vegetation type within this FMU. 

Non-fire Fuels Treatment Objectives: Multi staged treatments will be utilized, including 

chemical and mechanical treatments, to reduce cheatgrass competition with native plant taxa. 

Post-fire Rehabilitation and/or Restoration Objectives: Aggressive post-fire rehabilitation 

and restoration of wildfires will be done to promote native plant community reestablishment and 

soil stabilization. 

Community Protection/Community Assistance Objectives: Communities within this FMU 

have been assessed through RAMS analysis of 2003 and mitigation plans will be devised. 

Non-fire Fuels Treatments - The implementation of non-fire fuels treatments may be 

considered as needed by site-specific plan. 

Restoration and Rehabilitation - Restoration and rehabilitation will emphasize the reestablishment and perpetuation of habitat diversity. 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

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Figure 3. Foothills Sagebrush FMU 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

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Basin Bottom FMU 

Description 

Location - The Basin Bottom FMU is located south of the Montana State line and west of the 

convergence of the Nowood and Big Horn Rivers near Manderson. Its western boundary is 

shared with the eastern boundary of the Foothills Sagebrush FMU. Part of its southwest 

boundary is Bridger Trail and its eastern boundary the Bighorn River. It covers approximately 

929,866 acres which includes 623,586 acres of BLM land (including 22,493 acres of BOR land 

for fire administration), 3,543 acres of DOD land, 10,277 acres of National Park Service land, 

234,850 acres of privately owned land, and 35,137 acres of State land. 

Characteristics - The features of the Basin Bottom FMU include a dissected, rolling desert 

topography that includes salt flats, canyons, and, in some places, plains eroded to clay shale 

bedrock forming badlands. Elevation ranges from 3,600 ft to 5,900 ft. The vegetation can be 

divided into six subtypes as follows: 72% desert salt shrub, 0% foothill Mountain sagebrush and 

shrub, 1% juniper and limber pine, 2% mixed conifer, including lodgepole pine and riparian 

aspen, 4% sagebrush shrub critical habitat, and 21% of acres that include barren areas and 

greasewood flats. Invasive plant taxa include cheatgrass, Russian knapweed, tamarisk, and white 

top. Air quality meets National Air Quality Standards. No Federally listed threatened or 

endangered species have been identified for the Basin Bottom FMU. The Bighorn River and its 

perennial tributaries contain fish species of concern: sturgeon chub, shovelnose sturgeon, sauger, 

western silvery minnow, and plains minnow. 

The Basin Bottom soils formed over interbedded sandstone and shale. This FMU’s soils are 

poorly productive because of low average annual precipitation, generally less than 8 inches per 

year, and soil alkalinity and salinity. The erosion hazard for Basin Bottom FMU is moderate in 

the southern portion and high in the northern portion. Following wildfire, the predicted erosion 

values, based on Forest Service WEPP interface, averages 2.5 tons in the southern portion and 

4.2 tons per acre in the northern portion. The soil erosion worst case scenario for the southern 

and northern portions of this FMU ranges from 22 to 28 tons per acre, respectively. 

Fire History – Historically, fire size and number in this salt shrub dominated FMU have been 

small: 27 fires occurred between 1992 and 2003 affecting about 378 acres, the majority from 

lightning ignition. 

Values at Risk – Wildlife values at risk include use as antelope winter range and critical 

sagebrush habitat. Other values include use as winter livestock grazing and oil and gas 

production. Cultural resources at risk include Bridger Trail, Red Butte, and Red Gulch Dinosaur 

Tracksite. 

Communities at risk – There are no communities at risk in Basin Bottom FMU. Some farms 

and ranches are found in close proximity to hazardous fuels within the FMU. 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

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Fire Management Objectives 

Suppression Objectives: 

• Protect all WUI from loss or damage within the FMU. 

• Provide protection to cultural resources in area. 

• In riparian areas, wildland fires would be confined or contained to less than 10 acres 

under moderate to high fire intensity levels. 

• In Sage shrub critical habitat wildland fires will be confined/contained to less than 100 

acres 90% of the time, or no more than a loss of 5% of the total FMU’s burnable acres. 

Fire Use and Prescribed Fire Objectives: 

Use prescribed fire to maintain, enhance, and/or rehabilitate sagebrush shrub critical habitat 

vegetation type. 

Planned Fuels Treatments by Vegetative Class: Basin Bottom FMU is planned to have 500 

acres of Sage shrub critical habitat treatment over the next ten years. 

Non-fire Fuels Treatment Objectives: Multi staged mechanical and chemical treatments will 

be utilized to create mosaics of sagebrush shrub critical habitat vegetation type. 

Post-fire Rehabilitation and/or Restoration Objectives: Aggressive post-fire rehabilitation 

and restoration of wildfires will be done to promote native plant community reestablishment and 

soil stabilization. 

Community protection: There are no communities at risk within this FMU. 

Prescribed Fire - Fuels treatments may be considered as needed by a site-specific plan. 

Non-fire Fuels Treatments - The implementation of non-fire fuels treatments may be 

considered as needed by site-specific plan. 

Restoration and Rehabilitation - Restoration and rehabilitation will emphasize the reestablishment and perpetuation of habitat diversity. 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

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 Figure 4. Basin Bottom FMU 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

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Nowater FMU 

Description 

Location - The Nowater FMU is located south and east of the convergence of the Nowood and 

Bighorn Rivers near Manderson. Its southwest boundary is with the Wind River Indian 

Reservation and the easternmost boundary follows the Nowood River. It covers approximately 

1,063,220 acres which includes 687,633 acres of BLM land (including 1,419 acres of BOR land 

for fire administration), 284,773 acres of private land, and 89,395 acres of state land. 

Characteristics – The general topography of the Nowater FMU is dissected and rolling. 

Elevations range from 4000 ft to 5500 ft. The vegetation can be divided into six subtypes as 

follows: 21% desert salt shrub, 2% Foothill Mountain sagebrush and shrub, 10% juniper and 

limber pine, 1% mixed conifer, including lodgepole pine and riparian aspen, 60% sagebrush 

shrub critical habitat, and 6% of acres that include barren areas and crop land. Invasive plant 

taxa include black henbane, cheatgrass, Canada thistle, hounds tongue, Japanese brome, Musk 

thistle, Russian and spotted knapweed, tamarisk, white tip, and white top. Air quality meets 

National Air Quality Standards. No Federally listed threatened or endangered species have been 

identified for the Nowater FMU. The Bighorn River and its perennial tributaries contain fish 

species of concern: sturgeon chub, shovelnose sturgeon, sauger, western silvery minnow, and 

plains minnow. 

The Nowater FMU soils formed over interbedded sandstone and shale. Average annual 

precipitation is 8 to 14 inches with production varying with precipitation. Areas of high 

alkalinity and salinity reduce productivity in areas. Most of the FMU has a moderate erosion 

hazard ranking. Predicted erosion values, based on Forest Service WEPP interface, would range 

from 2.6 tons per acre in lower precipitin areas to 5.5 tons per acre in the higher precipitation 

zones following wildfire. Worst case scenarios predict erosion rates exceeding 20 tons per acre. 

Fire History – Historically, fire size in this sagebrush dominated FMU has been small but both 

size and occurrence appear to be increasing as cheatgrass and Japanese brome increase their 

distributions. Approximately 78,000 acres of sagebrush were burned by wildland fires in 1996 

and between 1992 and 2003 an additional 26,832 acres burned in 55 fires. Most fires in this area 

were ignited by lightning, but some resulted from fire use and equipment. Fire behavior differs 

between the sagebrush and cheatgrass/Japanese brome fuel types: Fires within the latter 

typically exhibit fast spread rates following summer curing while the former have higher fuel 

moistures during the same months. 

Values at Risk – Values to be protected include existing sagebrush shrub critical habitat and the 

numerous oil production facilities within the FMU. Cultural resources at risk are historical 

cultural sites including cabins and fences. 

Historically, wildfires occurred at return intervals of 35 to 100 years in sage brush (Artemisia 

sp.) vegetation types with mixed severity. However, the frequency, size, and severity of 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

28 
wildfires within this fire management unit are considerably higher than historical levels. Cheat 

grass matures earlier than native species and is an easily ignited fuel that promotes a rapid rate of 

fire spread. Greater fire frequencies occur, which cause a lower species richness in native 

communities and increase the relative frequency of cheat grass. 

Communities at risk – Thermopolis may be at risk in the event of wildland fire that is not 

suppressed within buffers areas. Thermopolis has municipal and rural components with multiple 

summer homes and cabins interspersed in sagebrush and juniper woodlands. 

Fire Management Objectives 

Suppression Objectives 

• Attempt to protect all WUI from loss or damage within the FMU. 

• Attempt to provide protection to cultural resources in area. 

• In desert cottonwood riparian areas and all perennial stream riparian areas, the goal 

would be that wildland fires would be confined or contained to less than 10 acres under 

moderate to high fire intensity levels. 

• In Sage shrub critical habitat wildland fires will be confined/contained to less than 100 

acres or no more than a loss of 3% of the total FMU’s burnable acres. 

Fire Use and Prescribed Fire Objectives: 

Use prescribed fire to maintain, enhance, and/or rehabilitate sagebrush shrub critical habitat 

vegetation type, with emphasis on limiting the spread of cheatgrass/Japanese brome and reducing 

its extent on the landscape. Both size and control methods such as leaving jagged edges and 

unburned islands of sagebrush within wildfire boundaries will be done to provide for a mosaic of 

age classes in sagebrush shrub critical habitat vegetation type. 

Planned Fuels Treatments by Vegetative Class: One thousand acres of sage shrub critical 

habitat are planned to be treated in the next decade. 

Non-fire Fuels Treatment Objectives: Multi staged treatments will be utilized, including 

chemical and mechanical treatments, to reduce cheatgrass competition with native plant taxa. 

Post-fire Rehabilitation and/or Restoration Objectives: Aggressive post fire rehabilitation 

and restoration will be initiated to facilitate reestablishment of sagebrush shrub critical habitat 

vegetation type. 

Community protection: There are no identified communities at risk in the Nowater FMU. 

Prescribed Fire - Fuels treatments may be considered as needed by a site-specific plan. 

Non-fire Fuels Treatments - The implementation of non-fire fuels treatments may be 

considered as needed by site-specific plan. 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

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Restoration and Rehabilitation - Restoration and rehabilitation will emphasize the reestablishment and perpetuation of habitat diversity and reduction of cheatgrass/Japanese brome 

proliferation. 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

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Figure 5. Nowater FMU 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

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West Slope Bighorn FMU 

Description 

Location - The West Slope Bighorn FMU is located east and south of the convergence, near 

Manderson, of the Nowood and Bighorn Rivers. Its western boundary follows the Bighorn River 

south from the Montana State line to Manderson, Wyoming, then south along the Nowood River 

to the southern edge of the Washakie County border line. Its eastern boundary is from the 

Montana state line south along the Bighorn Mountains to the eastern edge of the Worland Field 

Office boundary. It covers approximately 1,116,093 acres which includes 657,780 acres of BLM 

land (including 81 acres of BOR land for fire administration), 1,188 acres of Forest Service land, 

5,229 acres of Park Service land, 402,226 acres of private land, and 79,589 acres of state land. 

Characteristics- The general topography of the West Slope Bighorn FMU increases in elevation 

from west to east with elevations ranging from 4000 ft to 8200 ft. The vegetation can be divided 

into six subtypes as follows: 23% desert salt shrub, 16% Foothill Mountain sagebrush and shrub, 

18% juniper and limber pine, 7% mixed conifer, including lodgepole pine and riparian aspen, 

1% Ponderosa pine, 27% sagebrush shrub critical habitat, and 8% of acres that include barren 

areas, sub alpine meadows, and crop land. Starting at the base of the mountains and proceeding 

upslope, four distinct timber zones are present. The first is a juniper woodlands zone followed 

by a ponderosa pine belt. The third zone is mixed conifers on north-facing slopes and lastly a 

zone of lodgepole pine intermingled with aspen. Invasive plant taxa include cheatgrass, Canada 

thistle, hounds tongue, Japanese brome, Musk thistle, Russian and spotted knapweed, tamarisk, 

white tip, and white top. Air quality meets National Air Quality Standards. Two federally listed 

endangered species have been identified for the West Slope Bighorn FMU – the bald eagle and 

the peregrine falcon. The Yellowstone cutthroat trout has been petitioned for listing under the 

Endangered Species Act. The Bighorn River and its perennial tributaries contain fish species of 

concern: sturgeon chub, shovelnose sturgeon, sauger, western silvery minnow, and plains 

minnow. 

The West Slope Bighorn FMU is dissected and rolling east of the Bighorn Mountains foothills. 

Average annual precipitation is 10 to 18 inches with productivity varying with it. The erosion 

hazard ranking changes from slight to high moving east from its western boundary along the 

Bighorn River. The northern most area of this FMU has an erosion hazard rating of extreme. 

Predicted erosion values, based on Forest Service WEPP interface, following wildfire average 8 

tons per acre. The worst case scenario predicts erosion rates exceeding 21 tons per acre. 

Fire History – Between 1992 and 2003 the West Slope Bighorn FMU had 77 fires with a total of 

9,432 acres burned. Sixty eight percent of the fires in the FMU were caused by lightning, while 

32% of the fires in the FMU were caused by human ignitions. 

Values at Risk – Values at risk include existing sagebrush shrub critical habitat and elk and 

mule deer wintering grounds. Also, there is approximately 14,418 acres of commercial 

forestland. There are cabins, outbuildings, recreational sites and other structures interspersed 

throughout the FMU. 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

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Communities at risk – Communities include Beaver Creek, Hyatt Ranch, Upper Canyon Creek, 

Ten Sleep Special Use Area, and Middle Fork Powder River. 

Fire Management Objectives 

Suppression Objectives: 

• Attempt to protect all WUI from loss or damage within the FMU. 

• Attempt to provide protection to cultural resources in area. 

• Attempt to protect commercial timber stands in condition class 2 Fire Regime IV from 

catastrophic stand-replacing wildfire. 

• In desert cottonwood riparian areas and all perennial stream riparian areas, the goal 

would be that wildland fires would be confined or contained to less than 10 acres under 

moderate to high fire intensity levels. 

• In Sage shrub critical habitat wildland fires will be confined/contained to less than 100 

acres 90% of the time or no more than a loss of 5% of the total FMU’s burnable acres. 

Fire Use and Prescribed Fire Objectives: 

Pyric treatment to sagebrush shrub critical habitat vegetation type and reduction of juniper and 

limber pine invasion into sagebrush and riparian areas. Reduce heavy fuel build-up that has 

resulted from pine beetle infestation and fire suppression. Timber harvest, prescription fire, and 

mechanical treatments will be used to rejuvenate aspen stands. 

Planned Fuels Treatments by Vegetative Class: A total of 17,000 acres will are planned to be 

treated. This includes 200 acres of Ponderosa pine, 7,00 acres of Sage shrub critical habitat, 

7,000 acres of juniper and limber pine invasion of Foothill mountain sagebrush shrub type, and 

1,000 acres of mixed conifer/Lodgepole pine/Woodland/Riparian aspen vegetation type. 

Non-fire Fuels Treatment Objectives: Multi staged treatments will be utilized, including 

chemical and mechanical treatments to reduce cheatgrass competition with native plant taxa, to 

reduce ladder fuels in ponderosa pine stands, and reduce juniper encroachment into areas 

historically dominated by other taxa. 

Post-fire Rehabilitation and/or Restoration Objectives: Aggressive post fire rehabilitation 

and restoration will be initiated to facilitate reestablishment of native plant communities. 

Community protection/Community Assistance Objectives: Zone currently has one ongoing 

risk assessment and mitigation contract for the wildland urban interface community near the 

mouth of the Ten-Sleep Canyon. Two other assessments (Middle Fork Powder River and Upper 

Canyon Creek) are scheduled to occur over the next several years. 

Prescribed Fire - Fuels treatments may be considered as needed by a site-specific plan. 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

33 
Non-fire Fuels Treatments - The implementation of non-fire fuels treatments may be 

considered as needed by site-specific plan. 

Restoration and Rehabilitation - Restoration and rehabilitation will emphasize the reestablishment and perpetuation of habitat diversity and reduction of cheatgrass/Japanese brome 

proliferation. 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

34 
Figure 6. West Slope Bighorn FMU 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

35 
IV. Fire Management Program Components 

a. Wildland Fire Suppression: (2810, 2821, and 2824 programs) 

1. Fire Planning Unit Fire History Analysis

During the period of 1992-2003, the Fire Planning Unit averaged 19 fires per year, burning 

11,685 acres annually. Approximately 80% of these wildfires are Size Class A, B, and C 

incidents (less than 100 acres in size). On average, lightning accounts for approximately 66% of 

the annual number of fires while a variety of human caused fires accounts for the remaining 

44%. While the majority of fires are relatively insignificant in terms of size and fire intensity, 

periodic stand replacement events typically burn at high fire intensity levels (FIL 5 and 6). 

These fires can be several thousand acres in size. 

2. Suppression/Preparedness Actions

The operational roles of the BLM in the wildland/urban interface are wildland firefighting, 

hazardous fuels reduction, cooperative prevention and education, and technical assistance. 

Structural fire suppression is the responsibility of tribal, State, or local governments, as described 

in the Interagency Standards for Fire and Fire Aviation Operations. 

Use Appropriate Management Response (AMR) to suppress all fires in accordance with 

management objectives based on current conditions and fire location. A response can vary form 

an aggressive initial action to using MIST tactics and natural barriers in sensitive areas. AMR 

strategies would be tailored to address areas management considerations such as Areas of 

Critical Environmental Concern (ACECs), critical habitat for T&E species, areas of soil 

instability, areas of cultural heritage resources, and areas of other critical resource constraints. 

Requirements for fire operations/suppression plans can be found in the “Interagency Standard for 

Fire and Fire Aviation Operations” (Red Book) and the Office of Fire and Aviation website at 

http://www.fire.blm.gov/. All plans for fire and resource personnel use can be accessed at 

Worland Field Office or Cody Interagency Dispatch Center. 

Agency Administrators will ensure employees are trained, certified and available to participate in 

the wildland fire program locally, regionally, and nationally as the situation demands, as 

described in the Interagency Standards for Fire and Fire Aviation Operations. 

See Section V-a of this document for a complete summary of the preparedness organization 

including staffing, budget, equipment, etc. 

3. Fire Prevention, Community Education, Community Risk Assessment, and Other Community 

Assistance Activities (Firewise) 

a. Annual Prevention Program

Prevention is an active part of the fire management program. Details of the prevention 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

36 
program may be found in the RAMS Wildland Fire Prevention Plan. Training, prevention 

posters, and signs have and will be implemented throughout all communities within the 

Bighorn Basin. Community risks assessments and mitigation activities are conducted in 

partnership with the local communities each year. Specific details can be found in the RAMS 

Wildfire Assessment and Management Plan for Communities-at-risk. 

b. Special Orders and Closures (See State-wide interagency fire restriction plan) 

http://www.wy.blm.gov/fire/firedocs/firerestrictplan.htm 

All special orders and closures will be coordinated with local cooperators, recommended by 

the FMO, and approved by the appropriate manager(s) (see RAMS Wildland Fire Prevention 

Plan). 

c. Industrial Operations and Fire Precautions 

See RAMS Wildland Fire Prevention Plan. 

4. Annual Fire Training Activities 

a. Qualifications and Fireline Refresher 

Training and fitness requirements for all personal involved in fire/suppression support can be 

found in the 2004 Interagency Standards for Fire and Fire Aviation Management. Attendance 

at the refresher training is a prerequisite for issuance of a red card prior to June 15th annually. 

The successful completion of the appropriate level work capacity testing (WCT) is required 

annually. The WCT will expire on the first day of each calendar year. Management oversight 

and review of the wildland and prescribed fire positions falls under the jurisdiction of the 

Wyoming BLM North Zone Qualification and Certification Committee (see Attachment 2 ­

Wyoming BLM North Zone Qualification and Certification Committee Charter). 

b. Fire Season Readiness 

Requirements for preparedness and operational plans can be found in the 2004 Interagency 

Standards for Fire and Fire Aviation Management, and also located at Cody Interagency 

Dispatch Center. 

5. Detection

The Fire Management Staff may request aerial detection services on an as-needed basis from

Cody Interagency Dispatch Center. 

6. Fire Weather and Fire Danger 

The agency maintains four Remote Automated Weather Stations (RAWS) as follows: 

Name NWS ID NESDIS ID Elevation Latitude Longitude 

Rattlesnake 480212 3278A4E8 6800 44 34.43 109 14.14 

Hyatt High 480307 3264D47A 5720 44 18.00 107 30.58 

Grass Creek 480804 3264C70C 7100 43 56.00 108 51.14 

Splitrock 480904 3278B79E 6000 43 55.00 107 40.00 

Cody Interagency Dispatch Center staff is responsible for recurrent daily activities to manage 

RAWS data and for the input of key dates to initiate seasonal data collection and termination. 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

37 
Two portable RAWS are available; they can be installed to provide site specific weather 

information for projects where permanent RAWS information is not sufficient to collect needed 

data for a specific site. 

All unit RAWS use NFDRS fuel model T, except Rattlesnake which uses H, along with the 

energy release component to develop fire danger ratings on a daily basis. 

7. Aviation Management

The Fort Washakie Interagency Helicopter, the Southern Wyoming BLM Helicopter, and local 

vendors are available to provide point-to point transportation, aerial ignition platforms and 

reconnaissance missions to support resource management activities. Aviation resources 

associated with wildfire are normally procured by Cody Interagency Dispatch Center. Aircraft 

used in support of resource management and other activities unrelated to wildfire are acquired 

through the North Zone Aviation Manager. Aviation use within the FPU is conducted in 

accordance with procedures described in the North Zone Aviation Management Plan.

8. Initial Attack

All fires within the FPU will be managed with suppression actions consistent with preplanned 

dispatch protocols in conformance with resource management objectives identified in this plan. 

Tactics and strategies will be based on the current and predicted weather and fire behavior. 

Firefighter and public safety is always the first priority. Use the following information for 

determining initial attack priorities and appropriate management response. 

The FMU priorities within the fire planning unit for initial attack are separated into two 

categories that rank by priority. Priority was determined based on factors of localities of WUI 

areas, resource values and management considerations and environmental considerations. If 

fires are within or threatening urban interface zones, category one and its associated rank will be 

the highest priority. When fires fall outside the urban interface zones and are not threatening, 

category two and its associated rank will be the highest priority due to ecological degradation 

and environmental concern. 

Category 1: 

1.) West Slope Bighorn 

2.) Absaroka Front 

3.) Nowater 

4.) Foothills Sagebrush 

5.) Basin Bottom 

Category 2: 

1.) Nowater 

2.) West Slope Bighorn 

3.) Absaroka Front 

4.) Foothills Sagebrush 

5.) Basin Bottom 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

38 
As fire complexity increases, additional staffing will be requested as appropriate and consistent 

with incident complexity. 

9. Extended Attack and Large Fire Suppression 

The BLM requires no narrative in this section. This section is here to maintain consistency with 

other agencies format. BLM direction is outlined in the Interagency Standards for Fire and Fire 

Aviation Operations. 

10. Other Management Considerations 

Fire trespass issues, off-set agreements and interagency agreements are based on a fire 

management policy and are identified in this document. 

Smoke Management Concerns: At this time, smoke management is not a concern. Prior to any 

ignition, proposed burns are submitted to the Wyoming Airshed Coordinator for approval. 

Consultation Procedures: Due to the fact that “May Affect” projects in the Wyoming Northern 

Zone BLM need to go through the consultation process, projects need to be identified in a timely 

manner. Presently, this is a significant workload for resource specialists and biologists in the 

North Zone. If potential impacts to federally listed species are identified during initial project 

scoping, the appropriate consulting agencies, USFWS, Wyoming Game and Fish and NOAA 

Fisheries, will be involved in project design and mitigation. Consultation will be concluded prior 

to signing the Decision Record. If no potential impacts to threatened or endangered species are 

identified, a “No Effect” determination will be made and placed in the project file prior to 

signing the Decision Record. 

All necessary cultural and botanical clearances will also be conducted prior to the start of the 

NEPA document. Documentation of clearances will be conducted by the Botanist and 

Archeologist prior to the writing of the NEPA document. 

b. Wildland Fire Use (2821, 2823, and 2824) - referred to as Wildland Fire Use for 

Resource Benefit 

The current RMP’s do not allow for wildland fire use based on the mixed land ownership 

patterns and large amount of livestock grazing in the planning area. Wildland fire use will be 

addressed in the new zone-wide RMP that addresses both the Worland and Cody field offices. 

The RMP planning process is scheduled to begin in October of 2006. 

c. Prescribed Fire and Non-Fire Treatments (2823, 2824) 

1. Planning, Documentation and Program Direction 

The North Zone conducts fuels treatments to reduce hazardous fuels, restore fire–adapted 

ecosystems, promote community assistance and to and to accomplish resource management 

objectives. All projects are closely coordinated with the Cody and Worland resources staffs and 

especially the rangeland, forestry, wildlife habitat and weed programs which also manage 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

39 
vegetation. Long term project planning priorities have been identified through the RAMs Fuels 

Management Plan located in Attachment 6. Additional opportunities for fuels treatments not 

identified in RAMs are evaluated on a case by case basis. At the individual treatment level 

planning will take place using this process: 

1. A project proposal will be submitted to the Field Manager. If the Field Manager 

approves the project for further planning an interdisciplinary team will be formed. 

2. All of the applicable elements in the Job Planning check list in the Prescribed Fire 

Management Handbook (H -9214) will be addressed for both prescribed fire and non-fire 

projects. Project maps will be produced using GIS and their storage location will be 

documented in the project file. 

3. Planning efforts will follow the NEPA process. The interdisciplinary team will identify 

the purpose and need for the treatment, determine objectives, propose treatment 

alternatives, and develop monitoring protocols to evaluate if objectives are met or not. 

The team will consist of a combination of resources and support services staff for all 

prescribed fire projects. For mechanical and chemical treatments involvement of the 

zoned support services staff will be on an as needed basis. 

4. The public, permittees, state, local, and federal agencies will be consulted during the 

NEPA process in accordance with the collaborative framework identified in the National 

Fire Plan’s 10 – Year Comprehensive Strategy. 

5. An appropriate decision document will be prepared depending on the level of NEPA 

documentation that is required. For example, a Decision Memorandum would be used 

for a CX, a Decision Record for an EA, and Record of Decision for an EIS. 

6. For prescribed fire projects, Prescribed Open Burn Permits, Wyoming State Land Board 

approval, private land releases, grazing agreements and all other necessary permits and 

approvals will be completed prior to any ignition. Preferably, these permits, agreements 

and approvals will be obtained in the winter well before the spring burning period. 

7. For all prescribed burn projects, a prescribed burn plan will be completed consistent with 

the Prescribed Fire Management Handbook (H -9214). 

8. All prescribed burns will be conducted in accordance with the approved burn plan. Close 

consultation will occur between the support services staff and resources staff during the 

implementation phase. Both staffs will work together to make needed adjustments to 

ensure project objectives are met for both fire and non-fire projects. 

9. All prescribed fire and non-fire treatments will have a monitoring protocol. The intensity 

of monitoring will vary depending on the project and post treatment land use. For 

example, an intensive monitoring protocol might include vegetation sampling before and 

after the treatment, grazing studies, and fuels surveys. The minimum monitoring standard 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

40 
for all projects is described in Monitoring of Fuels and Rehabilitation Treatments 

on page 47. 

10. All completed projects will be mapped in GIS. 

11. Acres treated will be reported in the National Fire Plan Operations and Reporting System

 (NFPORS), RIPS, and MIS. The project files will be stored in the RIPs system at each 

 field office. For prescribed fire projects, the field burn file and project planning file will be

 combined when the project is complete. 

12. Reporting acres and maintenance of GIS data is a field office responsibility. 

13. All treatments for the upcoming fiscal year will be entered in NFPORS by April 15 each 

year. 

Primary burn windows in the FPU are spring and fall. During winters with light snow pack 

burning can be successfully conducted as early as February. Prior to these burning windows the 

public is made aware of upcoming project through general media releases and formal 

notifications in accordance with the burn plans. 

The winter season is dedicated to planning future projects, developing and supervising contracts, 

evaluating monitoring information, pile burning, equipment maintenance. 

Mechanical fuels contracts utilizing heavy equipment are often conducted during the winter to 

minimize soil disturbance. These contracts usually consist of mowing, thinning, and timber sales 

that may include with fuels treatments. 

Approximately 15 - 20 projects a year take place. In recent years the zone has averaged about 

2100 acres of mechanical and chemical treatments and 2000 acres of prescribed fire treatments. 

The relatively small size of the individual treatments is a caused by the need to negotiate grazing 

agreements for most projects. Local ranchers have limited ability to set aside large acreages that 

are necessary to accommodate treatments, especially prescribed burns. 

In the future, it is anticipated that acreage would increase if grazing agreements can be reached 

to treat cheatgrass in the Nowater FMU. 

The majority of the acres is condition class 2 and 3 and can be moved to condition class 2 after 

treatment. 

In 2003 about 60% of the total treatment budget was implemented through contractors from the 

Rocky Mountain states. About 5% was implemented using local contractors from the Big Horn 

Basin in Wyoming. 

Other than firewood, no market currently exists for mechanically treated by products. However, 

one project did produce large amount of wood chips which were given to the public for 

landscaping. 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

41 
The zone has submitted two stewardship contracts in 2004. 

Position needs to meet the fuels management work load are 4 Type II burn bosses, 6 ignition 

specialist and 6 holding specialist for prescribed fire. Planning and monitoring efforts require 3 

Natural Resource Specialist with staff support from both resources and support services. One 

fire ecologist assists in project planning, evaluation and implementation. At least 4 CORs are 

required to supervise contracts that range form Risk Assessments and Mitigation plans to large 

scale thinning projects with heavy equipment. One fuels technician is required to supervise the 

summer fuels module, fill various roles in RX fire and mechanical treatment implementation and 

to assist in planning and monitoring efforts. The fuels program manger provides for program 

coordination and accountability, manages budget, reports accomplishments, and plans out year 

projects. 

All of the above personnel fill various roles depending on the need and most are qualified to 

perform several different functions. 

Maps displaying proposed and completed prescribed fire, mechanical, and chemical treatments 

are maintained in the GIS at the field office level. 

2. Air Quality and Smoke Management 

The Cloud Peak, Washakie, and Absaroka Beartooth Wilderness Areas are Class I air sheds. The 

entire zone is classified as a Class 2 air shed. Prevailing winds usually carry smoke away from 

the Washakie and Absaroka Beartooth Wilderness Areas. The Cloud Peak Wilderness area 

could be impacted from smoke produced from prescribed fires. Burns are ignited under 

conditions that facilitate high lofting into the transport layer and over the wilderness area. Any 

impacts are short term in nature. 

Air quality across the FPU is generally good. There are no non-attainment areas in or near the 

zone. 

Permits are obtained from the Wyoming Department of Environmental Quality for all prescribed 

burn projects each year. Project proposals with SASEM runs are submitted to DEQ in January 

each year. 

d. Emergency Stabilization and Rehabilitation (ESR): 

The annual workload associated with ESR is based on the existing fire history of the NZ. Based 

on the current policy associated with this effort, the NZ will continue efforts in ESR to “protect, 

and sustain ecosystems, public health, safety, and to help communities protect infrastructure.” 

The NZ has only written three ESR plans during the last nine seasons. 

Any wildfire suppression damage will be funded by the suppression account and included in a 

short rehab plan before the fire team is disbanded. If it is determined during this effort that an 

ESR plan is needed, the state office ESR coordinator will be notified. A state mini BAER team 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

42 
will be assembled to assist the FO in getting started on the effort and reviewing the completed 

plan for the State Director or Washington office approval. 

The anticipated workload associated with this effort will consist of writing an ESR plan and a 

NEPA document for the rehab activities, and consulting with all appropriate agencies, land 

owners, and affected livestock operators. The NEPA documentation and consultation are up to 

date and in place for the use of chemicals to control noxious weeds associated with wildfire. The 

NZ will continue treatment in and around a disturbed area associated with wildfire until 

Resource Specialists determine there is no longer a threat of noxious weeds. If necessary, this 

treatment will continue beyond the time frame for ESR funding. 

When preparing an assessment for rehabilitation efforts of wildfire, the NZ will identify and 

analyze OHV use in the burned area. If there is an apparent threat for OHV use to cause 

resource damage, the field office will restrict OHV use in a geographic area in and/or around the 

burn based on resource specialist’s professional judgment. Main routes into the area should be 

signed with information regarding the restrictions, including the anticipated length of time that 

the changes would be in effect. In addition, the restrictions should be announced on the radio for 

an appropriate length of time and a news release published in the local news papers. 

e. Monitoring of Fuels and Rehabilitation Treatments: 

It is important that baseline monitoring efforts in the NZ take place prior to any prescribed fire, 

mechanical, chemical, and rehabilitation treatments. Post treatment monitoring is required to 

determine if direct treatment objectives and resource management objectives were met. Direct 

treatment objectives are usually attributes such as plant mortality, fuel consumption, burn pattern 

(mosaic) and total acreage. Resource management objectives usually concern post treatment 

vegetation attributes such as cover, frequency, production, density, and stocking level of a 

desired species. (See H-9214, Chapter 2, E-F.) 

The minimum monitoring standard for prescribed burns is weather, observed fire behavior, and 

fire treatments objectives such as fuel consumption, fire severity, burn pattern, and burned acres. 

If fuel moisture values, such as live fuel moisture or soil moisture are included in the 

prescription, then those parameters should also be monitored. 

In addition, all prescribed fire and non-fire fuels treatments will have: 

- pre and post Fire Regime and Condition Class evaluation (Appendix W) 

- at least one photo point location, which can be returned to, preferably taken in 4 opposing 

directions both pre and post treatment. 

- North Zone Fuels Treatment Monitoring Form completed and filed in the RIPs project file 

(Appendix X). 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

43 
- GIS data base that includes a completed attribute table and pre and post treatment shape files of 

the treatment perimeter (Appendix Y). 

Assignment of monitoring responsibilities is a field office responsibility. 

In addition, a representative number and type of treatments will be evaluated to document the 

effectiveness of modifying fire behavior. For example, the zone fuels specialist will calculate 

pre and post treatment fire behavior for a least each fuel model treated in the zone. 

Although not required for every project, more detailed vegetative, soils and other resource data is 

desirable if time and personnel power allows. This is particularly true of treatment methods 

which have not been widely used in the zone. An effort should also be made to conduct 

monitoring on treatments which were completed prior to this fire plan. A number of prescribed 

burns were conducted in the late 1970’s, early 1980’s, and throughout the 1990’s in the North 

Zone that have permanent monitoring studies in place. These studies offer ideal opportunities to 

monitor long term vegetative response to treatment that should be shared throughout the BLM. 

Every effort should be made to integrate fuels and rehabilitation monitoring with other resource 

monitoring programs. For example, a permanently located monitoring study designed to monitor 

rangeland health may also serve as the monitoring study for a fuels project. If the study happens 

to fall within a treatment area and the ID team determines the study can serve a dual purpose, 

there would not be a need to install a new monitoring location just for the fuels project. 

Monitoring of rehabilitation efforts would follow the same general protocol to the extent 

practical. 

f. Community Assistance 

There are 5 communities within the North Zone identified as at risk through RAMS and the 

Federal Register. Each community is in a different stage of assessment and mitigation and a 

description of such is as follows: 

- The community of Thermopolis has had a risk assessment completed; mitigation 

plan outlined and has been fully implemented and completed. 

- The community of Ten Sleep Canyon/Special Use Area has had a risk assessment 

completed; mitigation plan outlined and is currently being implemented and a 

target completion date is being determined. 

- The community of the North Fork/South Fork of the Shoshone River is currently 

undergoing a risk assessment; upon completion, a mitigation plan will be 

formulated, a time table for implementation identified and a target date of 

completion set. 

- The communities of Canyon Creek and the Middle Fork of the Powder River 

currently do not have a completed risk assessment nor mitigation plan; a risk 

assessment is planned for each community by FY05. 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

44 
Rural fire assistance grants have been awarded to the communities of Thermopolis, Ten Sleep, 

Worland, Basin, Greybull, Shell, Manderson, Meeteetse, Cody and Clark. Specific items 

purchased have included PPE, communication components, firefighting equipment (i.e. hose, 

tools, etc.) and upgrades to apparatus. Grants have also been awarded to provide training from 

the North Zone BLM to the community fire districts. This training has accomplished significant 

improvement in the abilities of the communities and continues to be an ongoing project. 

V: Organization and Budget 

a. Budget and Organization 

 The current budget and organization is not sufficient to meet 100% of the objectives described 

within this FMP. We have a significant reduction in native herbaceous vegetation due to the 

invasion of alien annual species. Cheat grass has increased our fire frequency which in turn has 

increased the relative frequency of cheat grass. More initial attack resources are needed to 

manage the ever changing fire regime within the WY BLM Northern Zone and the increasing 

work loads associated with an expanding urban interface. 

Currently the WY BLM North Zone is operating at the identified Maximum Efficiency Level 

(MEL). This level has been identified to provide safe, cost-effective support of land and 

resource management plans. This planned level identifies needed management oversight, 

required staffing, equipment and training standards. Due to the fact that WY BLM North Zone is 

at MEL and yet is not meeting objectives, re-evaluation of the identified MEL should commence. 

The following charts show the current MEL by sub activity: 

Sub-Act:2810 Program 

Management 

Fire Use 

and 

Fuels 

Admin 

Support 

Prevention Init Atk/ 

Suppression 

Total 

Dollars 

PERSONAL 65,280 21,612 10,909 287,642 385,443 

EQUIPMENT 2,246 511 10,720 13,477 

PROCUREMENT 1,225 16,336 1,532 28,179 47,272 

CONTRACT 10,212 3,063 13,273 

F.O.R. 3,222 54,133 57,335 

TRAVEL 5,105 4,084 1,532 12,252 22,973 

TRAINING 1,021 1,532 1,021 16,336 19,910 

AVIATION 

TOTAL: 85,087 50,360 14,994 409,242 559,683 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

45 
Sub-Act:2823 Program 

Management 

Fire Use 

and Fuels 

Admin 

Support 

Prevention Init Atk/ 

Suppression 

Total 

Dollars 

PERSONAL 89,813 89,813 

EQUIPMENT 5,105 5,105 

PROCUREMENT 5,105 5,105 

CONTRACT 13,273 13,273 

F.O.R. 15,315 15,315 

TRAVEL 10,210 10,210 

TRAINING 7,658 7,658 

AVIATION 

TOTAL: 5,105 128,101 13,273 146,479 

Sub-Act:2824 Program 

Management 

Fire Use 

and 

Fuels 

Admin 

Support 

Prevention Init Atk/ 

Suppression 

Total 

Dollars 

PERSONAL 216,925 216,925 

EQUIPMENT 

PROCUREMENT 3,063 3,063 

CONTRACT 24,504 24,504 

F.O.R. 10,721 10,721 

TRAVEL 15,315 15,315 

TRAINING 

AVIATION 

TOTAL: 246,024 24,504 270,528 

The following charts show the current organization: 

Chart 1- Positions: 

Resource Current 

Staffing 

Normal 

Activation 

Sub 

Activity 

Cost 

FMO 1 Yearly 2810 48,000 

FOS 1 Yearly 2810 37,602 

Fuels Specialist 1 Yearly 2823 56,535 

Center Manger 1 Yearly 2810 59,677 

Dispatcher 1 June-Sept. 2810 20,459 

Fuels Mod. Supervisor 1 April-Nov. 2823 34,000 

Engine Mod. Supervisor 3 April-Nov. 2810 103,200 

Assistant Mod. Supervisor 3 May-Oct. 2810 90,300 

Seasonal Fire Crew 9 June-Sept. 2810 154,800 

Seasonal Fuels Crew 9 June-Oct. 2823/2824 171,000 

Natural Resource Specialist 3 Yearly 2824 190,000 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

46 
Chart 2- Equipment: 

Resource Current 

Number 

Sub 

Activity 

Yearly 

Cost 

Command Vehicles 2 2810 5,520 

Fuels Specialist Vehicle 1 2823 3,360 

CIDC Vehicle 1 2810 3,984 

Fuels Chases 2 2823/2824 6,720 

NRS vehicles 3 2824 8,280 

Type VI engine 3 2810 42,271 

Fire Chases 2 2810 6,720 

Utility/Terra Torch Vehicle 1 2810 1,260 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

47 
Bureau of Land Management Implemented Fire Resources - Attachment 1 

Office: Wyoming North Zone 

Resources Quantity 

Number 

of 

Personnel 

Total 

Work 

Months 

Number of Engines: 3 15 84 

Number of Water tenders: 

Number of Dozers: 

Number of Tractors / plows: 

Number of Fire Boats: 

Number of Type 1 Crews: 

Number of Helitack Crews: 

Number of Fuels Crews: 1 10 54 

Number of Type 2 Crews sponsored: 

Number of Smokejumpers (AK & NIFC 

only): 

Number of Fire Management Officers: 1 10 

Number of Assistant FMOs / FCOs: 

Number of Fire Operations Specialists: 1 10 

Number of Dispatchers: 2 14 

Number of Other Aviation Staff 

(Aviation Mgr., Seat Mgr, etc.): 

Number of 

Mitigation/Education/Prevention 

Specialists / Techs: 

Number of Resource Specialists: 3 30 

Number of Fuels Specialists: 1 10 

Number of Other Fire Staff: 1 2 

Number of PFT funded by 

Preparedness: 2 

Number of Career Seasonals funded by 

Preparedness: 7 

Number of Temporaries funded by 

Preparedness: 10 

Number of PFT funded by Fuels: 4 

Number of Career Seasonals funded by 

Fuels: 1 

Number of Temporaries funded by 

Fuels: 9 

* In completing this table, only include Preparedness resource numbers funded by Fire 

Preparedness (2810) and reflect the peak fire organization resources for the year. Do not include 

resources funded under severity. The fuels related resources numbers are to include the resource 

funded by the non-WUI (2823) and WUI (2824) programs. 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

48 
b. Cooperative Agreements and Interagency Contracts 

• Cody Interagency Dispatch Center – Gives Cody Interagency Dispatch Center authority to 

dispatch BLM Northern Zone resources for initial attack and fire support. The agreement 

includes delegation of authority to CDC for dispatch activities and Zone FMO to represent 

Field Office Managers on the oversight committee and multi-agency coordination (MAC). 

• Fort Washakie Interagency Helicopter – Establishes the role and operation of the interagency 

helicopter with the BIA at Ft. Washakie; the BLM in Rawlins, Worland, and Cody; and the 

Forest Service—Bighorn and Shoshone National Forests. 

• BLM/USFS – Defines initial attack responsibilities and exchange. 

• Wyoming Interagency Cooperative Fire Protection Agreement – Outlines details of 

implementing the agreement through annual operating plans between federal and county 

wildland fire protection agencies (Park, Hot Springs, Big Horn and Washakie). 

• Wyoming Interagency Fire Restriction Plan – Provides direction for when and how to 

implement fire restrictions or closures in conjunction with Wyoming cooperators. 

A number of agreements and memoranda of understanding are in place at the state and 

national levels that are not addressed in this Fire Management Plan. The agreements are 

incorporated in policy and addressed in manuals and handbooks. 

• Wyoming Cody Dispatch Center Zone Incident Service and Supply Plan- This plan provides 

the general administrative procedures to support Incident Management Teams (IMT) 

operations and to ensure consistency while involved in incidents in the Cody Interagency 

Dispatch (CDC) Zone. 

c. Equipment Rental Agreements 

Copies of these agreements are available in the Wyoming Cody Dispatch Center Zone Incident 

Service and Supply Plan. 

d. Contract Suppression and Prescribed Fire Resources 

Copies of these contracts/agreements are available in the Wyoming Cody Dispatch Center Zone 

Incident Service and Supply Plan. 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

49 
VI. Monitoring and Evaluation of the Zone Fire Plan 

a. Annual Monitoring Requirements 

The Northern Zone will monitor the effectiveness of this FMP in meeting fire and resource 

management objectives as outlined in the 2001 FWFMP, area RMPs and associated activity 

plans. Any shortages or conflicts will be resolved and the FMP will be revised as needed. 

Project level plans will be evaluated to ensure that the treatment/action meets the purpose and 

need for the project. The effectiveness of the FMP will be evaluated for both the fuels and fire 

suppression programs: 

Fuels Treatment 

The fuels treatment program involves reduction of natural fuels, activity-generated fuels such as 

slash, and restoration of fire adapted ecosystems. In addition to the monitoring protocols 

prescribed for fuels treatments in section e. Monitoring of Fuels and Rehabilitation Treatments: 

on page 47, the following program goals will be evaluated: 

-Percentage of WUI vs. Non WUI treatments 

 The national program goal is 60% WUI and 40% non - WUI treatments. 

-Percentage of treatments utilizing collaborative planning 

The national program goal is for 60% of all treatments to be planned using a collaborative 

process. 

Wildland Fire Suppression 

Fire suppression direction is to protect life, property, and resource values from wildland fire in a 

cost-efficient and safe manner. The following criteria will be evaluation measurements: 

-Budget and program are based on an analysis of efficiency 

-Wildland fire suppression organization reflects the analysis based on current year funding 

-Wildland fire suppression is based on least-cost plus damages with consideration for policy 

concerns 

-Appropriate management response is commensurate with RMP direction 

-In addition to RMP standards and guidelines, each incident will be monitored for effectiveness 

of the planned strategies and tactics; Zone wildland fires will have FMO or FOS documented 

site visits to review tactics and rehabilitation. 

b. Reporting Requirements 

All wildland fires are currently entered into the BLM Fire Reporting system (DI-1202). 

Fuels and fire rehabilitation accomplishment and reporting are currently entered into the National 

Fire Plan Operations and Reporting System. 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

50 
REFERENCES 

Federal Wildland Fire Management Policy. 1995, updated 2001. 

National Fire Plan.2000. Available: http://www.fireplan.gov/ 

National Interagency Fire Center (NIFC). 1998. Wildland and prescribed fire management policy: Implementation 

Procedures reference guide. 

National Interagency Fire Center. 2001. Review and update of the 1995 Federal Wildland Fire Management Policy. 

U.S. Department of Agriculture and U.S. Department of the Interior. 2001. A collaborative approach for reducing 

wildland fire risk to communities and the environment - 10-year comprehensive strategy. 

Available: http://www.fireplan.gov/report_page.cfm 

U.S. Department of Agriculture and U.S. Department of the Interior. 2002. A collaborative approach for reducing 

wildland fire risk to communities and the environment - 10-year comprehensive strategy Implementation Plan. 

Available: http://www.fireplan.gov/report_page.cfm 

U.S. Department of Agriculture and U.S. Department of the Interior. 1998. Wildland and Prescribed Fire Management 

Policy Implementation Procedures Reference Guide. 

U.S. Department of Agriculture and U.S. Department of the Interior. 2002. Interagency Burned Area Emergency 

Stabilization and Rehabilitation Handbook. Available: http://fire.r9.fws.gov/ifcc/ESR/ 

U.S. Department of Agriculture, Forest Service. 2000. Protecting People and Sustaining Resources in Fire-Adapted 

Ecosystems - A Cohesive Strategy. Available: http://www.fs.fed.us/pub/fam/. 

U.S. Department of Interior, Bureau of Land Management. 1988. Worland Field Office 

 Absaroka Front Habitat Management Plan. 

U.S. Department of Interior, Bureau of Land Management. 1996. Worland Field Office 

Brokenback Diversity Unit Analysis. 

U.S. Department of Interior, Bureau of Land Management. 1988. Cody Field Office 

Cody RMP. 

U.S. Department of Interior, Bureau of Land Management. 1984. Worland Field Office 

West Slope Habitat Management Plan. 

U.S. Department of Interior, Bureau of Land Management. 1986. Worland Field Office 

Washakie RMP. 

U.S. Department of Interior, Bureau of Land Management. 1986. Worland Field Office 

Grass Creek RMP. 

U.S. Department of Interior, Bureau of Land Management. 2000. Prescribed Fire Management. 

U.S. Department of Interior, Bureau of Land Management. 2001. Wyoming Northern Zone, 

Activity Plan for Fire Management. 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

51 
LIST OF ACRONYMS 

ACEC Area of Critical Environmental Concern 

ARPA Archaeological Resources Protection Act 

BLM Bureau of Land Management 

CIDC Cody Interagency Dispatch Center 

CFO Cody Field Office 

DNA Documentation of NEPA Adequacy 

EA Environmental Assessment 

EFSA Escaped Fire Situation Analysis, now known as WFSA 

EIS Environmental Impact Statement 

ESA Endangered Species Act 

ESR Emergency Stabilization and Rehabilitation 

FLPMA Federal Land Policy and Management Act 

FMP Fire Management Plan 

FMU Fire Management Unit 

FWFMP Federal Wildland Fire Management Policy 

GAP Gap Analysis Project 

LUP Land Use Plan 

MIST Minimum Impact Suppression Tactics 

MMA Maximum Manageable Area 

NEPA National Environmental Policy Act 

NFP National Fire Plan 

NHPA National Historic Preservation Act 

NMFS National Marine Fisheries Service (now NOAA Fisheries) 

NOAA National Oceanic & Atmospheric Administration 

OHV Off-highway vehicle 

RHCA Riparian Habitat Conservation Area 

RMP Resource Management Plan 

RX Prescribed Burn 

SRMA Special Recreation Management Area 

USFS United States Forest Service 

USFWS United States Fish and Wildlife Service 

WFIP Wildland Fire Implementation Plan 

WFO Worland Field Office 

WFSA Wildland Fire Situation Analysis 

WFURB Wildland Fire Use for Resource Benefit 

WSA Wilderness Study Area 

WUI Wildland-Urban Interface 

DGF Wyoming Department of Game and Fish 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

52 
GLOSSARY 

Area of Critical Environmental Concern - Acreage within BLM public lands where special 

management attention is required (when such areas are developed or used or where no development is 

required) to protect and prevent irreparable damage to important historical, cultural, or visual values; fish 

and wildlife resources, or other natural systems or processes; or to protect life and safety from natural 

hazards.

Critical Habitat - Under the Endangered Species Act, critical habitat is defined as habitat of federally

listed threatened or endangered species where those physical and biological features essential to 

conservation of the species are found and which may require special management considerations or 

protection. This habitat may currently be occupied or determined by the Secretary of the Interior to be 

essential for areas outside the species' current range.

Ecosystem - 1) A community of living plants and animals interacting with each other and with their 

physical environment; a geographic area where it is meaningful to address the interrelationships with 

human social systems, sources of energy, and the ecological processes that shape change over time. 

2) The complex of a community of organisms and its environment functioning as an ecological unit in 

nature.

Endangered Species - Any species of animal or plant in danger of extinction throughout all or a 

significant portion of its range and so designated by the Secretary of Interior in accordance with the 1973 

Endangered Species Act. 

Environmental Assessment (EA) – Environmental Assessments were authorized by the NEPA of 1969. 

They are concise, analytical documents prepared with public participation that determine if an 

Environmental Impact Statement (EIS) is needed for a particular project or action. If an EA determines 

an EIS is not needed, the EA becomes the document allowing agency compliance with NEPA

requirements. 

Environmental Impact Statement (EIS) – A detailed public document which complies with NEPA law 

and regulation; an EIS describes a major Federal action which significantly affects the quality of the 

human environment, provides alternatives to the proposed action, and analyzes the effects of the proposed 

action.

Fire Frequency (Fire Return Interval) - How often fire burns a given area; often expressed in terms of 

fire return intervals (e.g., fire returns to a site every 5-15 years). 

Fire Management Plan - A strategic plan that defines a program to manage wildland and prescribed 

fires based on an area’s RMP. A Fire Management Plan must provide for firefighter and public safety;

include fire management strategies, tactics, and alternatives; address values to be protected and public 

health issues; and be consistent with resource management objectives, activities of the area, and 

environmental laws and regulations. The plan is supplemented by operational plans such as preparedness 

plans, preplanned dispatch plans, prescribed fire plans, and prevention plans. 

Fire Management Unit – A land management area definable by objectives, management constraints, 

topographic features, access, values to be protected, political boundaries, fuel types, and fire regime 

groups; that set it apart from the management characteristics of an adjacent FMU. 

Fire Regime - Periodicity and pattern of naturally occurring fires in a particular area or vegetative type, 

described in terms of frequency, biological severity, and area of extent. 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

53 
Fire-Adapted Ecosystem - An ecosystem with the ability to survive and regenerate in a fire-prone 

environment. 

Fuel Reduction - Manipulation, including combustion, or removal of fuels to reduce the likelihood of 

ignition and/or to lessen potential damage and resistance to control. 

Hazardous Fuels - A fuel complex defined by kind, arrangement, volume, condition, and location that 

forms a special threat of ignition or of suppression difficulty. 

Interdisciplinary Team - A group of individuals with different specialized training assembled to solve a 

problem or perform a task. The team is assembled out of recognition that no one discipline is sufficiently

broad to adequately solve the problem; through interaction, participants bring different points of view and 

a broader range of expertise to bear on the problem. 

Maximum Manageable Area - The maximum manageable area in a Wildland Fire Implementation Plan 

designates the ultimate acceptable size for a given wildland fire managed for resource benefits. It 

provides for a closely directed fire management application in a specific area defined by resource 

objectives, fire and weather prescription elements, social needs, political considerations, and management 

capability. 

Noxious Weeds - Any plant designated by a federal, state, or county government to be injurious to public 

health, agriculture, recreation, wildlife, or any public or private property. Noxious weeds generally

possess one or more of the following characteristics: aggressive and difficult to manage, poisonous, toxic, 

parasitic, a carrier or host for serious insects or diseases, and generally non-native. 

Preparedness - Activities that lead to a safe, efficient, and cost-effective fire management program in 

support of land and resource management objectives through appropriate planning and coordination. 

Prescribed fire (RX) - Any fire ignited by management actions to meet specific objectives. A written, 

approved prescribed fire plan must exist and NEPA requirements must be met prior to ignition. 

Prescribed Fire Plan (Burn Plan) – This document provides the prescribed fire burn boss information 

needed to implement an individual prescribed fire project. 

Prescription - Measurable criteria that define conditions under which a prescribed fire may be ignited, 

guide selection of appropriate management responses, and indicate other required actions. Prescription 

criteria may include safety, economic, public health, environmental, geographic, administrative, social, or 

legal considerations. 

Prevention - Activities directed at reducing the number of person-caused fires, including public

education, law enforcement, dissemination of information, and the reduction of hazards. 

Rehabilitation - The activities necessary to repair damage or disturbance caused by wildland fires or the 

fire suppression activity.

Resource Management Plan - A document prepared by BLM Field Office staff with public participation 

and approved by the State Director that provides general guidance and direction for land management 

activities. 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

54 
Riparian Habitat Conservation Areas - Portions of watersheds where riparian-dependent resources 

receive primary emphasis and management activities are subject to specific standards and guidelines. 

RHCAs include traditional riparian corridors, wetlands, intermittent headwater streams, and other areas 

where proper ecological functioning is crucial to maintenance of the stream’s water, sediment, woody 

debris, and nutrient delivery systems. 

Sensitive Species - Those plant and animal species identified by the BLM State Director as sensitive, 

usually in cooperation with the State Agency responsible for managing the species. Sensitive species are 

also defined as those (a) which are under status review by the USFWS or NOAA Fisheries; or (b) whose 

numbers are declining so rapidly that Federal listing may become necessary; or (c) with typically small 

and widely dispersed populations; or (d) inhabiting ecological refugia of other specialized or unique 

habitats. 

Special Recreation Management Area – BLM administrative units established to direct recreation 

program priorities, including the allocation of funding and personnel, to those public lands where a 

commitment has been made to provide specific recreation activities and experience opportunities on a 

sustained yield basis. 

Suppression – All the work of extinguishing or containing a fire, beginning with its discovery. 

Threatened Species - Any species likely to become endangered within the foreseeable future throughout 

all or a significant portion of its range and that has been designated in the Federal Register by the 

Secretary of Interior as such. 

Watershed - The area of land bounded by a divide, that drains water, sediment, and dissolved materials 

to a common outlet at some point along a stream channel, or to a lake, reservoir, or other body of water; 

also called drainage basin or catchment. 

Wilderness Study Area - A roadless area or island that has been inventoried and found to have 

wilderness characteristics and is being subjected to planning and public review to determine wilderness 

suitability. 

Wildland - An area in which development is essentially non-existent, except for roads, railroads, power 

lines, and similar transportation facilities; structures, if any, are widely scattered. 

Wildland Fire for Resource Benefit (also known as Wildland Fire Use) - The management of 

naturally ignited wildland fires to accomplish specific pre-stated resource management objectives in 

predefined geographic areas outlined in FMPs. 

Wildland Fire Implementation Plan - A progressively developed assessment and operational 

management plan that documents the analysis and selection of strategies and describes the appropriate 

management response for a wildland fire being managed for resource benefits. 

Wildland Fire Situation Analysis – A decision making process that evaluates alternative management 

strategies against selected safety, environmental, social, economic, political, and resource management 

objectives. 

Wildland-Urban Interface - The line, area, or zone where structures or other human development meet 

or intermingle with undeveloped wildland or vegetative fuels. 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

55 
Attachment 1. 

9400 N 

1112 

(010)

 (020) 

AVIATION PLAN 

Worland and Cody Field Offices 

Routine flying is far safer than traveling by automobile, measured by number of deaths or injuries per passenger 

mile. However flying is inherently unsafe because the flight environment is unforgiving of mistakes. Much of the 

flying done by BLM employees is not routine and is potentially much more threatening to safety than the normal 

passenger transport that provides comforting accident statistics. Most of our flying is at low altitude, in terrain 

hazardous to flight, or at remote locations where communications and dealing with emergency situations is difficult. 

Because of our special needs, some of our flying is done under exemptions from regulations which govern usual 

flight activities. 

For reasons of safety and fiscal and statutory compliance, a protocol has evolved to direct flight operations 

conducted by agencies. This aviation plan describes the structure of our aviation organization, and policies and 

procedures for use of aircraft to ensure our aircraft use is safe, efficient and in compliance with directives governing 

Bureau aircraft use. 

AVIATION PLAN ORGANIZATION 

The Office of Aircraft Services, located in Boise, is responsible for Department-wide functions related to aircraft 

services and facilities. Much of the way we perform our aviation activities is pursuant to directives originating from 

this office. OAS functions include, among other things: 

1. Procuring commercial aviation services, DOI-owned aircraft, and other related services in 

support of Bureau aviation use. 

2. Establishing standards governing operational procedures, aircraft maintenance, and 

qualifications and proficiency standards for aircrew and maintenance personnel. 

3. Development and implementation of aviation safety programs, accident/incident/hazard 

reporting systems, and aviation user training programs. 

This is not an inclusive list. When we use aviation services we work through OAS. 

The BLM National Aviation Office is also located at Boise. Aviation policy specific to the BLM originates with 

this office. 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

56 
The BLM State Director is responsible for all aviation activities within his jurisdiction. State Directors must assure 

that no person engages in aviation activities as a passenger, manager or crew member without required training 

specific to the mission and level of responsibility. Each appoints a State Aviation Manager to provide staff 

assistance on all aviation matters. 

The Field Manager is responsible for planning and conducting aviation activities within his jurisdiction. Each 

assigns an Aviation Manager to provide staff assistance on aviation matters. 

The Aviation Manager serves as the principal aviation professional for the field office(s) and is responsible for 

aviation matters within the local office jurisdiction. These responsibilities include oversight of local aviation 

operations and identification and procurement of necessary aviation training for North Zone personnel. 

AVIATION POLICY AND DIRECTIVES 

Except during life threatening emergencies, Bureau aircraft use is subject to the following general policy: 

A. Flight operations using government owned, contracted, or chartered aircraft will be accomplished with 

safety as the prime consideration. 

B. Personnel performing aviation functions shall meet the requirements of Departmental Manuals and 

recognized Bureau standards. 

C. The aviation management program will subscribe to the United States aviation industry quality standards 

for operations, maintenance and training. 

D. The aviation organization will be developed and maintained to the most efficient level appropriate for the 

BLM mission. 

E. Line management has the responsibility to enhance the BLM mission through efficient aircraft utilization. 

Field offices are empowered to accomplish their mission with undue restriction, regulation or oversight. 

F. The BLM shall not intentionally compete with private industry. If the mission is proprietary to the 

government, can’t be effectively accomplished by commercial sources, or service cost is excessive, the 

Bureau may consider use of government owned or operated aircraft. 

Bureau aviation activities are subject to a variety of directives, originating both within and outside of the Bureau. 

Attachment 1 lists most of those affecting us. Most relevant to our operations are Departmental Manual and Bureau 

Manual sections prescribing DOI and BLM aviation management respectively. The former includes a number of 

specific subject handbooks, e.g. Aviation Life Support Equipment (PPE) and Aviation Transportation of Hazardous 

Materials. Additionally, aviation and fire activities, which are often interagency undertakings, are increasingly 

conducted according to interagency guidance. Those interagency guides which have been adapted by the Bureau 

become mandatory for our operations. A significant example is the Interagency Helicopter Operations Guide, but 

there are a number of others. 

FIELD OFFICE AIRCRAFT USE 

APPROVED AIRCRAFT: Except for regularly scheduled commercial flights, aircraft we may use are only those 

certified for our use by the Office of Aircraft Services or by the U.S. Forest Service. These aircraft will have on 

board an Airplane or Helicopter Data Record card, specific to that aircraft and describing the tasks that aircraft 

may do for us. The presence of an aircraft data card issued by OAS indicates that procurement arrangements are in 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

57 
place for the use of that aircraft by DOI agencies; this is not true of aircraft data cards issued by the U.S.F.S. 

Consequently, except for aircraft use that can be charged to a wildfire or other incident number, we cannot use 

aircraft that have been certified only by the U.S.F.S.

Occasionally we have an opportunity to use a civil, i.e. non-governmental, aircraft for the mutual benefit of the 

government and the cooperating party making the aircraft available. This may be done providing there is no cost to

the government, and OAS has ensured that the aircraft and pilot meet the standards necessary for us to utilize them. 

APPROVED PILOTS: Pilots authorized to work for us are issued Interagency Airplane Pilot or Helicopter Pilot 

Qualification cards by either OAS or the U.S.F.S. We may use pilots certified by either agency. These cards list 

the missions the pilots may do for us, and we may not use them for missions not specifically identified on the cards. 

The requirement to use only agency-certified aircraft and pilots to conduct Bureau business may not be 

circumvented, for example by taking a short period of annual leave to conduct a flight. 

AUTHORIZED PASSENGERS: An authorized passenger may be anyone on board a government flight whose 

presence enhances accomplishment of a Departmental program. This could include federal, state and local agency 

employees, volunteers and private citizens. Conversely, unauthorized passengers would be people whose presence 

on board the aircraft would serve no official Departmental purpose. Volunteers may not participate in special use 

flights (defined below). 

SCHEDULING FLIGHTS: Requests for aircraft use, except for wildfire incidents, should be made through the 

zone aviation manager. This provides an opportunity to match the aircraft to the mission, ensure the pilot and 

aircraft ordered are certified to work for us, and provides an opportunity for oversight required by Departmental and 

Bureau directives. If the zone aviation manager is unavailable, arrangements may be made through the state 

aviation manager. If both are unavailable aircraft may be ordered through Cody Interagency Dispatch 

Center. Flight requests associated with wildfire will normally be handled through CDC. 

SPECIAL USE ACTIVITIES: Non-routine flight operations requiring special consideration due to their functional 

use are special use flights and require preparation of a special use plan, approved by the respective field manager. 

This applies to all of our helicopter use, and may apply to some of our fixed wing mission flights as well. Low level 

flight, i.e. below 500 feet, is special use flight, but for the North Zone is limited to helicopters only. It is North Zone 

policy that 500 feet above ground level is the minimum altitude for fixed wing flight. Everyone on board a special 

use flight must be addressed in the special use plan. Special use flights are subject to specific clothing and PPE 

requirements described below. 

RISK ASSESSMENT: Risk assessment is a subjective analysis of the physical and procedural hazards associated 

with a proposed flight. This is done by identifying the risks, evaluating the magnitude of these risks and 

determining possible mitigation, with the objective of comparing the risks assumed with the anticipated benefits of 

the flight. A variety of risk assessment methods and matrixes exist. Some form of this procedure should take place, 

even if informally. Attachment 3 provides samples of risk assessment and go/no go formats. 

TRAINING: Departmental and Bureau Manuals require that participants in aviation activities be provided training 

appropriate to the flight activity being undertaken. In practice this means anyone participating in other than pointto-point flights should attend a basic airplane/helicopter safety course (OAS course No. B-3) at least every third 

year. In circumstances where an individual who has not had this training will be a passenger on a special use flight, 

someone that has had the training must attend the loading and unloading of the passenger and cargo, or must also be 

on the flight. This training is recommended for anybody having anything to do with aviation activities, and is 

available locally at least every third year. 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

58 
ORDERING AND USING AIRCRAFT

BEFORE THE FLIGHT

1. Request the flight on Bureau Form 9400-1a, available from the aviation manager. It is helpful to do this 

several days in advance, with more time required for special use flights. Particular aircraft are often 

unavailable on short notice. On the form describe the purpose of the flight, passengers, desired dates and 

times (alternative dates are helpful), special needs, e.g. aircraft mounted GPS equipment or specific pilot or 

aircraft, etc. A cost code to charge the flight to is required. If weights are relevant, which they usually are, 

weights of passengers and gear will be needed. If the flight is other than point-to-point a map of the 

general area of operation is useful. Administrative flights, i.e. point-to-point passenger transport, are 

subject to mandatory cost comparisons and documentation. 

2. If the flight will be a special use flight, a special use plan must be prepared. The aviation manager can help 

with this. Anticipate the need for more lead time for this. 

3. Obtain personal protective equipment (PPE) necessary for the flight. If the flight will begin early it would 

be prudent to get the equipment the previous day. Some flights may require nothing extraordinary. Some 

special use flights and all helicopter flights require use of a full complement of PPE. For these flights all 

passengers must avoid garments of synthetic fabrics and must wear lace-up leather boots, a nomex flight 

suit, nomex or leather gloves, and a flight helmet. In the Worland Field Office flight helmets, flight suits 

and gloves and earplugs are available from the aviation manager, or from the Lead Support Services 

Specialist. The Cody Field Office has a separate cache of flight gear. For all winter flights of any kind, 

bring whatever gear needed to protect yourself from cold for an extended period of time. 

4. Obtain radios for flight following, i.e. for ongoing communication of the location of the aircraft in flight. 

Most, but not all, vendors will have all that is needed as standard equipment on the aircraft, but an 

additional hand held radio carried along may prevent the termination of a flight in the event of a radio 

equipment failure. If the vendor does not have what we need we will have to provide our own. Flight 

following will normally be done with Cody Interagency Dispatch Center. They will do this outside of 

normal working hours if needed. The aviation manager will make arrangements for flight following. 

5. Obtain aerial hazards maps from the aviation manager. These are for the pilot to see during the pre-flight 

briefing. These show towers, power line corridors, etc. and the location and dimensions of the military 

training routes crossing the Big Horn Basin. 

6. On the day of the planned flight, show up at the airport or rendezvous location early enough to provide for 

an unhurried pre-flight briefing. The briefing is a two-part enterprise; the passenger briefs the pilot on the 

mission, and the pilot briefs the passengers about the aircraft and its operation. 

FAA regulations and Departmental directives require that the pilot provide a briefing for the passengers.. 

The pilot should show his OAS/FS pilots card and should point out the OAS/FS-issued aircraft data card on 

the aircraft. These are issued annually so should be checked for currency and to verify that both are 

certified for the task. His briefing should address safety procedures and equipment, emergency procedures 

and survival equipment. 

If multiple passengers are involved, one must act as chief of party. This person represents the group to the 

pilot, assembles the passengers for boarding, checks the aircraft and pilot cards, provides manifests to the 

pilot and to dispatching and receiving units, makes necessary contact before and after the flight, signs flight 

invoices if needed, and in general attends to the welfare of the other passengers. If the flight is point-topoint the chief of party must ensure a FAA flight plan has been filed, unless other flight following 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

59 
arrangements have been made. Laminated wallet-sized Aviation User Checklist cards which describe 

briefing items and chief of party duties are available from the aviation manager. 

The briefing for the pilot should be as explicit and detailed as possible. The more clearly he understands 

the mission, the better able he will be to provide the service we need. This is also the time to discuss flight 

following and clarify how this will be handled. 

If the pilot appears fatigued, question him about it, especially during periods of high fire activity. Pilots we 

use are limited to eight hours of flying per day and fourteen-hour work days. There are other limitations as 

well. These are described in Attachment 2. No matter what is specified by directives, if you are confronted 

by a pilot you think is unfit or unprepared to fly, don’t fly with him. You may always decline a flight. 

Occasionally vendors have been asked to attach cameras or antennas to the exterior of the aircraft. Don’t 

ask them to do this; such attachments violate our directives and some are violations of Federal Aviation 

Regulations. GPS devices do not need to have antennas outside the aircraft to be effective and most aircraft 

are now equipped with their own. 

A list of substances and devices that are regarded as hazardous materials when transported by air is 

surprisingly inclusive. They include, among other things, all kinds of batteries, fuels, explosives, almost 

any aerosols or compressed gases (especially pepper spray and tear gas), fusees, heat detection devices and 

ammunition. A procedure has been developed for carrying these items on aircraft, and is described in the 

interagency handbook Aviation Transport of Hazardous Materials. This handbook requires the pilot be 

informed in writing when anything identifiable as hazardous material is placed on an aircraft. 

7. On single-engine fixed-wing aircraft the passengers must be aboard and the doors closed before the engine 

is started. Likewise, the engine must be stopped before the doors are opened and they depart the aircraft. 

On Interior Department flights, boarding and departing multi-engine fixed-wing aircraft may take place 

with engines running, provided there are no engines operating on the side where this activity is occurring, 

and the pilot is at the controls. This is different from U.S.F.S. flights, where boarding and departing are not 

permitted if any engines are operating. 

DURING THE FLIGHT

1. Establish flight following with Cody Interagency Dispatch Center upon departure. A phone call to them 

before departure is helpful if this is available. A national flight following frequency of 168.650 kh is 

available. This is intended for cross-country flights but local use is so minor that it may sometimes be used 

without interfering with other traffic. CDC can suggest alternatives regarding radio frequencies. Some 

vendors have external antennas with cables that can be connected to our hand-held radios, so if aircraft 

radios do not suit our needs, we may obtain serviceable communications with our own equipment. If our 

own radios are to be used, needed frequencies may need to be installed. 

If contact with CDC cannot be maintained, alternatives may be available. Flight following may be possible 

with either Cody or Worland Field Offices. Consider this only if CDC is unavailable. Flight following 

consists of describing the location and heading of the aircraft at regular intervals not to exceed 15 minutes. 

The contact should be initiated from the aircraft, not from CDC. The purpose is to make the aircraft less 

difficult to find, should it be forced down. Most aircraft are now equipped with GPS devices and can 

provide precise locations. If radio contact cannot be maintained, terminate the flight and contact the flight 

following station by phone as soon as possible. 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

60 
A plan for dealing with overdue or missing aircraft has been developed for the North Zone. Aircraft are 

overdue when communication has not occurred for longer than fifteen minutes. When 30 minutes have 

elapsed without contact, it will be regarded as a missing aircraft. This will be dealt with as prescribed in 

the Aviation Incident/Accident Response Guide, and may involve launching a search aircraft. 

2. Wear your personal protective equipment. Specific PPE requirements are to be found in the interagency 

Aviation Life Support Equipment Handbook. Be protective of your hearing around aircraft, especially 

helicopters, which cause rapid, permanent hearing loss in the voice frequency range. 

3. Assist the pilot in detecting aerial hazards. If low level flight is involved be particularly alert for wires. 

Point out other aircraft, birds, towers or anything that may be a danger to the aircraft. The most effective 

method of avoiding aerial hazards is still see and avoid. Two military training routes cross the Big Horn 

Basin. These routes are operational twenty-four hours a day and are potentially more than thirteen miles 

wide in places. They are commonly occupied at altitudes below 500 feet. Many people think military 

aircraft have technical means to readily detect other aircraft. Most do not and avoid collisions the same 

way we do. Your pilot will appreciate another set of eyes. 

4. The pilot has ultimate authority when airborne. Flying the aircraft and activity therein is his responsibility; 

regarding these things he is in charge. On the other hand we are paying for the flight so if we are not 

getting the services we need, talk to the pilot about it. 

5. As a result of accidents occurring in congested airspace near airports, the concept of a sterile cockpit has 

developed. The intent is to cease unnecessary conversations on the radio and in the cockpit during takeoffs 

and landings and otherwise near airports, so the pilot may fly without distractions. 

6. Don’t: - ask the pilot to descend below 500 feet in a fixed wing aircraft. He probably would but he 

shouldn’t. 

- manipulate aircraft controls, even if offered by the pilot. This violates Departmental directives. 

- remain on board the aircraft during refueling, or assist with refueling. 

- ask the pilot to do something he is uncomfortable with. If he is uncomfortable with it you should 

be also. 

- begin a flight in the dark or conclude one after dark in a single-engine aircraft. We may fly 

single-engine vendor aircraft only during daylight hours, defined as from a half -hour before 

official sunrise to a half-hour after official sunset. 

AFTER THE FLIGHT

1. When the flight is completed, the vendor is paid through the use of the triplicate form AIRCRAFT USE 

REPORT, Form No. OAS- 23. The pilot should have a pad of these and will fill out the form. The 

passenger or chief of party need only verify the services provided, initial in the “Signed Received” column, 

and bring the white (“Original - OAS Copy”) and yellow (“User Copy”) copies back to the aviation 

manager. The vendor retains the blue copy. 

The aviation manager will verify the information and forward the document to OAS for payment. OAS 

pays the vendor and then bills the field office according to the charge code provided on the Flight Request 

Form and entered onto the OAS-23. A copy will also go to the state aviation manager. 

2. If anything was observed during the flight that should be added to the aerial hazards map, please inform the 

aviation manager. 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

61 
3. A SAFECOM, or aviation Safety Communiqué is a method of identifying potential or actual threats to 

aviation safety and to document incidents where safety has been compromised. This is done on an interagency form, FS 5700-14/OAS-34. Typically these forms are used to report the following types of 

situations: 

- unsafe actions by pilots, fuelers, aviation users; 

- failure of passengers or vendor personnel to use required PPE; 

- non-compliance with regulations or directives; 

- problems with policies and directives which may cause threats to aviation safety; 

- any situation, practice or condition which may compromise aviation safety. 

Additionally, SAFECOMS are used to document aircraft maintenance which is other than routine, and 

aviation incidents causing minor aircraft damage or minor injuries, i.e. requiring first aid only. 

Besides identifying obvious dangers, SAFECOMS are a means of illuminating potential problems which 

become apparent only in the aggregate, i.e. by identifying trends. For example, a minor maintenance 

problem with an aircraft assumes greater significance if several SAFECOMS disclose that this problem is 

common to many aircraft of the same type. Or a forgivable error by a pilot may suggest remedial action if 

other SAFECOMS show this pilot to be prone to errors. 

If you have seen or experienced something having to do with a flight or with any other aspect of aviation 

operations that you are uncomfortable with, don’t ignore it. A conversation with the pilot or others may 

help. If not , complete a SAFECOM. It may be useful to discuss the situation with the local or state 

aviation manager first, but this is not required; anyone may submit a SAFECOM. Whether submitted 

electronically or as a hard copy, the form is in a simple, self-explanatory, fill-in-the-blank format. The 

OAS home page provides a means of submitting one electronically. The e-mail address for OAS is given 

at the bottom of Attachment 1. 

3 Attachments: 

1 - Directives (1p) 

2 - Pilot Duty Limitations (1p)

3 - Risk Assessments (2pg) 

DIRECTIVES 

A. Federal Aviation Regulations, with authorized exceptions. 

B. GSA Federal Property Management Regulations - Subchapter G: Aviation, Transportation, and Motor 

Vehicles. 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

62 
C. (1) OMB Circular A-76: Performance of Commercial Activities. 

“..., it has been and continues to be the general policy of the Government to rely 

on commercial sources to supply the products and services the Government 

needs.” 

(2) OMB Circular A-123: Internal Control Systems. 

“Agencies shall maintain effective systems of accounting and administrative 

control.” 

(3) OMB Circular A-126: Improving the Management and Use of Government Aircraft. 

“...prescribes policies to be followed by Executive Agencies in acquiring, 

managing, using, accounting for the costs of, and disposing of aircraft.” 

D. Departmental Manual, Part 112, Chapter 12 - Office of Aircraft Services authority and 

organization. 

E. Departmental Manual, Parts 350-354 - DOI Aviation Management. 

F. BLM Manual, Section 9400 - Aviation Management. 

G. Interagency Guides - e.g. Interagency Helicopter Operations Guide, Interagency Airspace

 Coordination Guide, etc. 

There are other interagency guides that have formally adapted as Bureau policy. Some of these 

deal with aviation resources and uses not normally dealt with at the field office level. 

As noted previously, in addition to the interagency guides, OAS has issued a number of 

handbooks which have been adapted by the BLM are thereby Bureau policy. 

All of the documents listed above are available from the zone aviation manager, or form the state aviation manager. 

Additionally, the OAS has a web site at http://www.oas.gov/ Among other things available here are full texts of the 

Departmental Manuals, including the handbooks referred to above, fill-in-the-blanks SAFECOMS, and links to 

other aviation sites. 

(Attachment 1) 

PILOT DUTY LIMITATIONS 

8 hours maximum flight time per day. 

14 hours maximum duty day length. 

10 consecutive hours of rest prior to any duty day. 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

63 
42 hours maximum flight time during any consecutive six-day period. If 36 or more hours of flight time have been 

accumulated in any six-day period, the pilot shall have the next day off, and a new six-day 

period cycle will begin. 

All flight crew members shall have two days off within any 14 consecutive calendar days.

 (Attachment 2) 

(Attachment 3-1) 

RISK ASSESSMENT is the subjective analysis of physical hazards and operational procedures to arrive at a 

GO/NO-GO decision. Risk assessments support informed GO/NO-GO decisions which are the responsibility of 

line management. The pilot retains the final authority for a NO-GO decision when safe operation of the aircraft 

is a factor. 

If you answer NO to any of the 

elements, stop and re-evaluate. 

The following is designed to provide the aircraft user or manager a checklist 

to help determine a GO/NO-GO decision. 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

64 
YES NO GO/NO-GO CHECKLIST 

1. Aircraft data card, checked, mission approved. 

2. Pilot qualification card, checked, mission approved. 

3. Pilot flight/duty limitations checked. 

4. Manifest completed and left at departure point. 

5. Weight and balance completed by pilot. 

6. Mission approved by management. 

PPE available and worn if needed. 

7. Pilot briefed by personnel on intended missions and hazards. 

8. Aircraft safety briefing provided to passengers. 

9. Personnel trained and qualified for mission. 

10. Flight plan completed; flight following procedures established and 

operational. 

11. Hazard map reviewed for low-level flights. 

12. Weather forecast received, winds within prescribed limits. 

13. Cargo weighed, checked and secured. 

14. Survival equipment available if required. 

(Attachment 3-2) 

METHOD YES NO 

1. Is there an alternative method which would accomplish the mission more 

safely and/or efficiently (including accomplishment by ground methods)? 

2. Is the method selected approved and do detailed instructions for safe 

accomplishment exists? 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

65 
3. Have adequate flight following and communications methods been 

established? 

MEDIUM 

1. Can factors of terrain, altitude, temperature, or weather which could 

adversely affect the mission’s success be mitigated? 

2. Will the mission be conducted at low (below 500 ft. AGL) or high 

altitudes? Can the objective be achieved by flying at a higher altitude? 

3. If low level flight, have all known aerial hazards been identified during 

the planning process and are they known to all participants? 

4. If there is a potential for an airspace conflict (military, media or 

sightseeing aircraft), have mitigation measures been taken? 

5. Have adequate landing areas been identified and/or improved to minimum 

requirements? 

MAN 

1. Is the pilot properly carded for the mission to be conducted? 

2. Will the flight be conducted within the pilot flight time/duty day 

requirements and limitations? 

3. Have the minimum number of personnel necessary to accomplish the 

mission safely been assigned, and to they meet personnel qualifications 

and experience requirements? 

4. Will adequate personnel (flight and ground crew) and pilot briefings be 

conducted prior to the flight? 

5. Are users aware that the pilot-in-command has final authority over any 

operations conducted involving the aircraft or its occupants? 

MACHINE 

6. Is the aircraft capable of performing the mission in the environment 

(altitude, temperature, terrain, weather) where the operation will occur? 

7. Is the aircraft properly carded for the mission? 

WYOMING BLM NORTH ZONE 

QUALIFICATION and CERTIFICATION 

COMMITTEE CHARTER 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

66 
The Qualification and Certification Committee’s main duty is to provide management 

oversight and review of the wildland and prescribed fire positions under their 

jurisdiction. 

The Committee also: 

• Certifies that qualifications generated by the Incident Qualification and 

Certification System (IQCS) or other agency systems for employees are valid 

by reviewing the training and experience of each employee. 

• Determines if each employee possesses the personal characteristics necessary 

to perform the wildland and prescribed fire positions in a safe and efficient 

manner. 

• Makes recommendations to the appropriate agency administrator or designee 

– who is responsible for final signature. 

• Develops interagency training requirements and sponsors courses that can be 

offered locally. 

• Ensures training nominees meet minimum requirements for attending courses. 

• Makes recommendations regarding the initiation of position task books. 

• Examines current zone red card qualifications and insures that critical ICS 

positions are being developed to meet anticipated needs for local fires. 

• Provides an open forum for employees to discuss their role in the fire and 

prescribed fire organizations and how to advance in a systematic format. 

Attachment 2. 

Attachment 3-1: Condition Class Map and Table of WYNZ FMUs 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

67 
Fire Managem

ent Plan, May 2004 BLM – WY Northern Zone 

68 
Condition Class Table 

Condition class is a description of ecosystem health defined in the Cohesive strategy as follows: 

Condition Class 1: For the most part, fire regimes are within historical ranges. Vegetative composition and 

structure are intact. The risk of losing key ecosystem components from the occurrence of fire remains relatively 

low. 

Condition class 2: In these areas fire regimes have been moderately altered from their historic range by either 

increased or decreased fire frequency. A moderate risk of losing key ecosystem components has been identified for 

these acres. 

Condition class 3: Fire regimes have been significantly altered from their historic return interval. The risk of losing 

key ecosystem components from fire is high. Fire frequencies have departed from historical ranges by multiple 

return intervals. Vegetative structure, composition, and diversity have been significantly altered. These acres have 

the greatest risk of ecological collapse. 

Estimated Current Condition Class for NWFMZ Lands: 

Condition Class 1 165,435 Acres 

Condition Class 2 4,047,554 Acres 

Condition Class 3 1,289,561 Acres 

Attachment 3-2 

Absaroka Front FMU Vegetation Types 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

69 
and Acres by Ownership 

VEGETATION BLM BOR DOD FS NPS PRIVATE STATE TOTAL % 

TYPE ACRES ACRES ACRES ACRES ACRES ACRES ACRES ACRES FMU 

IN FMU IN IN IN IN IN FMU IN IN 

FMU FMU FMU FMU FMU FMU 

DESERT SALT 

SHRUB 24,046 1,406 0 0 0 12,030 2,301 39,783 4 

FOOTHILL 

MOUNTAIN SAGE 

AND SHRUB 50,782 546 0 720 0 107,640 40,782 200,470 19 

JUNIPER AND 

LIMBER PINE 76,096 1,007 0 1 0 59,022 13,408 149,534 14 

MIXED CONIFER, 

LODGEPOLE PINE, 

AND RIPARIAN 

ASPEN 28,420 0 0 5,430 0 0 8,829 42,679 4 

PONDEROSA PINE 0 0 0 0 0 0 0 0 0 

SAGEBRUSH SHRUB 

CRITICAL HABITAT 195,453 3,791 0 44 0 308,260 70,062 577,610 53 

GREASEWOOD, 

BARREN, AND CROP 5,523 1,031 0 1 0 55,104 3,050 64,709 6 

TOTAL 380,320 7,781 0 6,195 0 542,056 138,432 1,074,785 100 

BLM = Department of the Interior, Bureau of Land Management 

BOR = Department of the Interior, Bureau of Reclamation 

DOD = Department of Defense 

FS = Department of Agriculture, United States Forest Service 

NPS = Department of the Interior, United States Park Service 

Private = Deeded acres 

State = State of Wyoming 

Attachment 4-1 

Basin Bottom FMU Vegetation Types 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

70 
and Acres by Ownership 

VEGETATION BLM BOR DOD FS NPS PRIVATE STATE TOTAL % 

TYPE ACRES ACRES ACRES ACRES ACRES ACRES ACRES ACRES FMU 

IN FMU IN IN IN IN IN FMU IN IN 

FMU FMU FMU FMU FMU FMU 

DESERT SALT 

SHRUB 573,837 19,563 3,543 0 6,995 38,903 27,687 670,528 72 

FOOTHILL 

MOUNTAIN SAGE 

AND SHRUB 0 0 0 0 0 0 0 0 0 

JUNIPER AND 

LIMBER PINE 5,325 0 0 0 1,021 1,034 116 7,496 1 

MIXED CONIFER, 

LODGEPOLE PINE, 

AND RIPARIAN 

ASPEN 1,246 255 0 0 228 16,134 1,195 19,058 2 

PONDEROSA PINE 0 0 0 0 0 0 0 0 0 

SAGEBRUSH SHRUB 

CRITICAL HABITAT 25,271 812 0 0 128 9,046 1,038 36,295 4 

GREASEWOOD, 

BARREN, AND CROP 17,907 1,863 0 0 1,905 169,733 5,101 196,509 21 

TOTAL 623,586 22,493 3,543 0 10,277 234,850 35,137 929,886 100 

BLM = Department of the Interior, Bureau of Land Management 

BOR = Department of the Interior, Bureau of Reclamation 

DOD = Department of Defense 

FS = Department of Agriculture, United States Forest Service 

NPS = Department of the Interior, United States Park Service 

Private = Deeded acres 

State = State of Wyoming 

 Attachment 4-2 

Foothills Sagebrush FMU Vegetation Types 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

71 
and Acres by Ownership 

VEGETATION BLM BOR DOD FS NPS PRIVATE STATE TOTAL % 

TYPE ACRES ACRES ACRES ACRES ACRES ACRES ACRES ACRES FMU 

IN FMU IN IN IN IN IN FMU IN IN 

FMU FMU FMU FMU FMU FMU 

DESERT SALT 

SHRUB 379,829 29,048 0 0 0 51,679 24,589 485,145 37 

FOOTHILL 

MOUNTAIN SAGE 

AND SHRUB 646 0 0 0 0 2,623 39 3,308 0.25 

JUNIPER AND 

LIMBER PINE 5,029 0 0 0 0 2,305 103 7,437 0.50 

MIXED CONIFER, 

LODGEPOLE PINE, 

AND RIPARIAN 

ASPEN 1,859 0 0 0 0 14,444 295 16,598 1.25 

PONDEROSA PINE 0 0 0 0 0 0 0 0 0 

SAGEBRUSH SHRUB 

CRITICAL HABITAT 398,742 23,107 0 0 0 177,015 41,388 640,252 48 

GREASEWOOD, 

BARREN, AND CROP 4,052 2,957 0 0 0 154,217 4,600 165,826 13 

TOTAL 790,157 55,112 0 0 0 402,283 71,014 1,318,566 100 

BLM = Department of the Interior, Bureau of Land Management 

BOR = Department of the Interior, Bureau of Reclamation 

DOD = Department of Defense 

FS = Department of Agriculture, United States Forest Service 

NPS = Department of the Interior, United States Park Service 

Private = Deeded 

State = State of Wyoming 

Attachment 4-3 

Nowater FMU Vegetation Types 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

72 
and Acres by Ownership 

VEGETATION BLM BOR DOD FS NPS PRIVATE STATE TOTAL % 

TYPE ACRES ACRES ACRES ACRES ACRES ACRES ACRES ACRES FMU 

IN FMU IN IN IN IN IN FMU IN IN 

FMU FMU FMU FMU FMU FMU 

DESERT SALT 

SHRUB 201,593 671 0 0 0 10,826 13,675 226,765 21 

FOOTHILL 

MOUNTAIN SAGE 

AND SHRUB 4,861 0 0 0 0 14,591 1,218 20,670 2 

JUNIPER AND 

LIMBER PINE 47,674 0 0 0 0 41,716 13,571 102,961 10 

MIXED CONIFER, 

LODGEPOLE PINE, 

AND RIPARIAN 

ASPEN 508 0 0 0 0 7,687 326 8,521 1 

PONDEROSA PINE 0 0 0 0 0 0 0 0 0 

SAGEBRUSH SHRUB 

CRITICAL HABITAT 429,895 207 0 0 0 157,447 55,120 642,736 60 

GREASEWOOD, 

BARREN, AND CROP 3,102 474 0 0 0 52,506 5,485 61,567 6 

TOTAL 687,633 1,419 0 0 0 284,773 89,395 1,063,220 100 

BLM = Department of the Interior, Bureau of Land Management 

BOR = Department of the Interior, Bureau of Reclamation 

DOD = Department of Defense 

FS = Department of Agriculture, United States Forest Service 

NPS = Department of the Interior, United States Park Service 

Private = Deeded acres 

State = State of Wyoming 

 Attachment 4-4 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

73 
Western Slope Big Horn FMU Vegetation Types 

and Acres by Ownership 

VEGETATION BLM BOR DOD FS NPS PRIVATE STATE TOTAL % 

TYPE ACRES ACRES ACRES ACRES ACRES ACRES ACRES ACRES FMU 

IN FMU IN IN IN IN IN FMU IN IN 

FMU FMU FMU FMU FMU FMU 

DESERT SALT 

SHRUB 217,759 81 0 0 999 31,067 13,807 263,713 23 

FOOTHILL 

MOUNTAIN SAGE 

AND SHRUB 52,215 0 0 441 0 116,532 15,170 184,358 16 

JUNIPER AND 

LIMBER PINE 103,882 0 0 566 3,972 78,758 16,787 203,965 18 

MIXED CONIFER, 

LODGEPOLE PINE, 

AND RIPARIAN 

ASPEN 27,521 0 0 82 96 46,603 4,174 78,476 7 

PONDEROSA PINE 5,224 0 0 0 0 3,143 552 8,919 1 

SAGEBRUSH SHRUB 

CRITICAL HABITAT 216,369 0 0 98 0 71,061 24,259 311,787 27 

GREASEWOOD, 

BARREN, AND CROP 34,810 0 0 1 162 55,062 4,840 94,875 8 

TOTAL 657,780 81 0 1188 5,229 402,226 79,589 1,116,093 100 

BLM = Department of the Interior, Bureau of Land Management 

BOR = Department of the Interior, Bureau of Reclamation 

DOD = Department of Defense 

FS = Department of Agriculture, United States Forest Service 

NPS = Department of the Interior, United States Park Service 

Private = Deeded acres 

State = State of Wyoming 

 Attachment 4-5

 Attachment 5. 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

74 
Minimum Impact Suppression Tactics Guidelines 

USDA Forest Service - Northern Region 

1993 

Note: The following pages are quoted directly from, and provide the majority of the content contained in, Minimum Impact 

Suppression Tactics Guidelines (USDA Forest Service - Northern Region 1993). Beginning and ending quotation marks are 

omitted, since the entire document is quoted; however, where only portions of the document are reproduced, deletions are 

indicated by an ellipsis (...). Some errors in the original document (word choice, grammar, punctuation, etc.) have been edited. 

Preamble: The following Minimum Impact Suppression Tactics (MIST) guide is designed to assist 

Forest Service fire personnel when taking suppression action on wildfires located in wilderness, proposed 

wilderness or other lands with similar land management objectives. The guidelines are intended to reduce 

fire suppression impacts on the land while insuring the actions taken are timely and effective.... 

Concept: The concept of Minimum Impact Suppression Tactics (MIST) is to use the minimum amount 

of forces necessary to effectively achieve fire management protection objectives, consistent with land and 

resource management objectives. It implies a greater sensitivity to the impacts of suppression tactics and 

their long-term effects when determining how to implement an appropriate suppression response.... 

MIST is not intended to represent a separate or distinct classification of firefighting tactics, but rather a 

mindset of how to suppress a wildfire while minimizing the long-term effects of the suppression action.... 

The principle of fighting fire aggressively, but providing for safety first, will not be compromised. The 

key challenge to the line officer, fire manager, and firefighter is to be able to select the wildfire 

suppression tactics that are appropriate, given the fire's probable or potential behavior. The guiding 

principle is always "least cost plus loss" while meeting land and resource management objectives... These 

actions, or MlST, may result in an increase in the amount of time spent watching, rather than disturbing, a 

dying fire to insure it does not rise again. They may also involve additional rehabilitation measures on 

the site that were not previously carried out. When selecting an appropriate suppression response, 

firefighter safety must remain the highest concern. In addition, fire managers must be assured the planned 

actions will be effective and will remain effective over the expected duration of the fire.... 

Goal: The goal of MIST is to halt or delay fire spread in order to maintain the fire within predetermined 

parameters while producing the least possible impact on the resource being protected. These parameters 

are represented by the initial attack incident commander's "size-up of the situation" in the case of a new 

start, or by the "escaped fire situation analysis (EFSA)" in the case of an escaped fire. 

It is important to consider probable rehabilitation needs when selecting the appropriate suppression 

response. Tactics that reduce the need for rehabilitation are preferred whenever feasible. 

Suppression Responsibility 

...safety is the highest priority. All action will be anchored to the standard fire orders and watch out 

situations. Safety will remain the responsibility of each person involved with the incident. 

Initial/Extended Attack 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

75 
Incident Commander - To understand and carry out an appropriate suppression response that will best 

meet the land management objectives of the area at the least cost plus loss. Insure all forces used on the 

fire understand the plan for suppressing the fire in conjunction with MIST. 

Keep in communication with responsible fire manager or line officer to insure understanding and support 

of tactics being used on the fire. Evaluate and provide feedback as to the tactical effectiveness during and 

after fire incident. 

Project Fire 

Type I/II Incident Commander - To carry out instructions given by the responsible line officer, both 

verbally and through the Escaped Fire Situation Analysis (EFSA). Establish and nurture a close dialogue 

with the resource advisor assigned to the fire team. Review actions on site and evaluate for compliance 

with land line officer direction and effectiveness at meeting fire management protection objectives. 

Responsible Line Officer - To transmit the land management objectives of the fire area to the fire team 

and to define specific fire management protection objectives. Periodically review for compliance. 

Resource Advisor - To insure the interpretation and implementation of EFSA and other oral or written 

line officer direction are adequately carried out. Provide specific direction and guidelines as needed. 

Participate at fire team planning sessions, review incident action plans, and attend daily briefings to 

emphasize resource concerns and management's expectations. Provide assistance in updating the EFSA 

when necessary. Participate in incident management team debriefing and assist in evaluation of team 

performance related to MIST. 

Guidelines 

Following is a list of considerations for each fire situation. 

Hot-Line/Ground Fuels 

* Allow fire to burn to natural barriers. 

* Use cold-trail, wet line or combination when appropriate. 

* If constructed fireline is necessary, use only width and depth to check fire spread. 

* Consider use of fireline explosives for line construction. 

* Burn out and use low impact tools like swatter or 'gunny' sack. 

* Minimize bucking and cutting of trees to establish fireline; build line around logs when possible. 

* Use alternative mechanized equipment such as excavators, rubber tired skidders, etc. rather than 

tracked vehicles. 

* Use high pressure type sprayers on equipment prior to assigning to incident to help prevent spread of 

noxious weeds. 

* Constantly recheck cold trailed fireline. 

Hot-Line/Aerial Fuels 

* Limb vegetation adjacent to fireline only as needed to prevent additional fire spread. 

* During fireline construction, cut shrubs or small trees only when necessary. Make all cuts flush with 

the ground. 

* Minimize felling of trees and snags unless they threaten the fireline or seriously endanger workers. In 

lieu of felling, identify hazard trees with a lookout or flagging. 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

76 
* Scrape around tree bases near fireline if it is likely they will ignite. 

* Use fireline explosives for felling when possible to meet the need for more natural appearing 

 stumps. 

Mop-up/Ground Fuels 

* Do minimal spading; restrict spading to hot areas near fireline. 

* Coldtrail charred logs near fireline; do minimal tool scarring. 

* Minimize bucking of logs to extinguish fire or to check for hotspots; roll the logs instead if possible. 

* Return logs to original position after checking and when ground is cool. 

* Refrain from making bone yards; burned and partially burned fuels that were moved should be 

returned to a natural arrangement. 

* Consider allowing large logs to burn out. Use a lever rather than bucking to manage large logs which 

must be extinguished. 

* Use gravity socks in stream sources and/or a combination of water blivits and fold-a-tanks to 

minimize impacts to streams. 

* Consider using infrared detection devices along perimeter to reduce risk. 

* Personnel should avoid using rehabilitated firelines as travel corridors whenever possible because of 

potential soil compaction and possible detrimental impacts to rehabilitation work, i.e., water bars. 

Mop-up/Aerial Fuels 

* Remove or limb only those fuels which, if ignited, have potential to spread fire outside the fireline. 

* Before felling consider allowing ignited tree/snag to burn itself out. Ensure adequate safety measures 

are communicated if this option is chosen. 

* Identify hazard trees with a lookout or flagging. 

* If burning trees/snags pose a serious threat of spreading fire brands, extinguish fire with water or dirt 

whenever possible. Consider felling by blasting when feasible. Felling by crosscut or chainsaw 

should be the last resort. Align saw cuts to minimize visual impacts from more heavily traveled 

corridors. Slope cut away from line of sight when possible. 

Logistics 

Campsite Considerations 

* Locate facilities outside of wilderness whenever possible. 

* Coordinate with the Resource Advisor in choosing a site with the most reasonable qualities of 

resource protection and safety concerns. 

* Evaluate short-term low impact camps such as coyote or spike versus use of longer-term higher 

impact camps. 

* Use existing campsites such as reserved sites used by outfitters, if possible. 

* New site locations should be on impact-resistant and naturally draining areas such as rocky or sandy 

soils, or openings with heavy timber. 

* Avoid camps in meadows, along streams or on lakeshores. Locate at least 200 feet from lakes, 

streams, trails, or other sensitive areas. 

* Consider impacts on both present and future users. An agency commitment to wilderness values will 

promote those values to the public. 

* Lay out the camp components carefully from the start. Define cooking, sleeping, latrine, and water 

supply. 

* Minimize the number of trails and ensure adequate marking. 

* Consider fabric ground cloth for protection in high use areas such as around cooking facilities. 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

77 
* Use commercial portable toilet facilities where available. If these cannot be used, a latrine hole 

should be utilized. 

* Select latrine sites a minimum of 200 feet from water sources with natural screening. 

* Do not use nails in trees. 

* Constantly evaluate the impacts which will occur, both short and long term. 

Personal Camp Conduct 

* Use "leave no trace" camping techniques. 

* Minimize disturbance to land when preparing bedding site. Do not clear vegetation or trench to 

create bedding sites. 

* Use stoves for cooking, when possible. If a campfire is used, limit to one site and keep it as small as 

reasonable. Build either a "pit" or "mound" type fire. Avoid use of rocks to ring fires. 

* Use down and dead firewood. Use small diameter wood, which burns down more cleanly. *Don't 

burn plastics or aluminum - pack them out with other garbage. 

* Keep a clean camp and store food and garbage so they are unavailable to bears. Ensure items such as 

empty food containers are clean and odor-free; never bury them. 

* Select travel routes between camp and fire and define clearly. Carry water and bathe away from 

lakes and streams. Personnel must not introduce soaps, shampoos or other personal grooming 

chemicals into waterways. 

 Aviation Management 

One of the goals of wilderness managers is to minimize the disturbance caused by air operations during 

an incident. 

Aviation Use Guidelines 

* Maximize back haul flights as much as possible. 

* Use long line remote hook in lieu of constructed helispots for delivery or retrieval of supplies and 

gear. 

* Take precautions to insure noxious weeds are not inadvertently spread through the deployment of 

cargo nets and other external loads. 

* Use natural openings for helispots and paracargo landing zones as far as practical. If construction is 

necessary, avoid high visitor use areas. 

* Consider maintenance of existing helispots over creating new sites. 

* Obtain specific instructions for appropriate helispot construction prior to the commencement of any 

ground work. 

* Consider directional falling of trees and snags so they will be in a natural appearing arrangement. 

* Buck and limb only what is necessary to achieve safe/practical operating space in and around the 

landing pad area. 

Retardant Use 

During initial attack, fire managers must weigh the non-use of retardant with the probability of initial 

attack crews being able to successfully control or contain a wildfire. If it is determined that use of 

retardant may prevent a larger, more damaging wildfire, then the manager might consider retardant use 

even in sensitive areas. This decision must take into account all values at risk and the consequences of 

larger firefighting forces' impacts on the land. 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

78 
Consider impacts of water drops versus use of foam/retardant. If foam/retardant is deemed necessary, 

consider use of foam before retardant use. 

Hazardous Materials 

Flammable/Combustible Liquids 

* Store and dispense aircraft and equipment fuels in accordance with National Fire Protection 

Association (NFPA) and Health and Safety Handbook requirements. 

* Avoid spilling or leakage of oil or fuel (from sources such as portable pumps) into water sources or 

soils. 

* Store any liquid petroleum gas (propane) downhill and downwind from firecamps and away from 

ignition sources. 

Flammable Solids 

* Pick up residual fusees debris from the fireline and dispose of properly. 

Fire Retardant/Foaming Agents 

* Do not drop retardant or other suppressants near surface waters. 

* Use caution when operating pumps or engines with foaming agents to avoid contamination of water 

sources. 

Fireline Explosives 

* Remove all undetonated fireline explosives from storage areas and fireline at the conclusion of the 

incident and dispose of according to Bureau of Alcohol, Tobacco and Firearms (BATF) and Fireline 

Blaster Handbook requirements. Properly dispose of all packaging materials. 

 Fire Rehabilitation 

Rehabilitation is a critical need. This need arises primarily because of the impacts associated with fire 

suppression and the logistics that support it. The processes of constructing control lines, transporting 

personnel and materials, providing food and shelter for personnel, and other suppression activities have a 

significant impact on sensitive resources, regardless of the mitigation measures used. Therefore, 

rehabilitation must be undertaken in a timely, professional manner. 

During implementation, the resource advisor should be available for expert advise, support of personnel 

doing the rehabilitation work, and quality control. 

Rehabilitation Guidelines 

* Pick up and remove all flagging, garbage, litter, and equipment. Dispose of trash appropriately. 

* Clean fire pit of unburned materials and fill back in. 

* Discourage use of newly established trails created during the suppression effort by covering with 

brush, limbs, small diameter poles, and rotten logs in a naturally appearing arrangement. 

* Replace dug out soil and/or duff and obliterate any berms created during the suppression effort. 

* If impacted trails have developed on slopes greater than six percent, construct waterbars according to 

Fire Management Plan, May 2004 BLM – WY Northern Zone 

79 
the following waterbar spacing guide: 

Trail Percent Grade Maximum Spacing (feet) 

6-9 400 

10-15 200 

15-25 100 

25+ 50 

* Where soil has been exposed and compacted, such as in camps, on user-trails, and at helispots and 

pump sites, scarify the top 2 to 4 inches and scatter with needles, twigs, rocks, and dead branches. It 

is unlikely that seed and fertilizer for barren areas will be appropriate, in order to maintain the genetic 

integrity of the area. It may be possible, depending on the time of year and/or possibility of a rainy 

period, to harvest and scatter nearby seed, or to transplant certain native vegetation. 

* Blend campsites with natural surroundings, by filling in and covering latrine with soil, rocks, and 

other natural material. Naturalize campfire area by scattering ashes in nearby brush (after making 

sure any sparks are out) and returning site to a natural appearance. 

* Where trees were cut or limbed, cut stumps flush with ground, and scatter limbs and boles out of 

sight in an unburned area. Camouflage stumps and tree boles using rocks, dead woody material, 

fragments of stumps, bolewood, limbs, soil and fallen or broken green branches. Scattered sawdust 

and shavings will assist in decomposition and be less noticeable. Use native materials from adjacent, 

unimpacted areas if necessary. 

* Remove newly cut tree boles that are visible from trails or meadows. Drag other highly visible 

woody debris created during the suppression effort into timbered areas and disburse. Tree boles that 

are too large to move should be slant cut so a minimal amount of the cut surface is exposed to view. 

Chopping up the surface with an axe or pulaski, to make it jagged and rough, will speed natural 

decomposition. 

* Leave tops of felled trees attached. This will appear more natural than scattering the debris. 

* Consider using explosives on some stumps and cut faces of the bolewood for a more natural 

appearance. 

* Consider, if no other alternatives are available, helicopter sling-loading rounds and tops from a 

disturbed site when there has been an excessive amount of bucking, limbing and topping. 

* Tear out sumps or dams, where they have been used, and return site to natural condition. Replace any 

displaced rocks or streambed material that has been moved. Reclaim streambed to its predisturbed 

state, when appropriate. Walk through adjacent undisturbed area and take a look at the rehabilitation 

efforts to determine success at returning the area to as natural a state as possible. Good examples 

should be documented and shared with others! 

 Demobilization 

Because demobilization is often a time when people are tired or when weather conditions are less than 

ideal, enough time must be allowed to do a good job. When moving people and equipment, choose a 

method which is most efficient and has the least impact on the landscape and fire organization mission. 

An on-the-ground analysis of "How Things Went" will be important. 

Post-Fire Evaluation 

Post-fire evaluation is important for any fire occurrence so management can find out how things went in 

order to identify areas needing improvement, formulate strategies and produce quality work in the future. 

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This activity is especially important in wilderness and like sensitive areas due to their fragility and 

inclination to long-term damage by human impacts. 

Resource advisors and functional specialists such as wilderness rangers will be responsible for conducting 

the post-fire evaluation. They are the people who have the experience and knowledge to provide 

information required to make the evaluation meaningful and productive. 

Post-fire evaluation will consist of data collection, documentation and recommendations. This process 

and report will, in most cases, be fairly simple and to the point. It should be accomplished before an 

overhead team departs from the fire. The evaluation emphasis should be on the MIST actions and not on 

the effects of the fire. 

Evaluation will be completed on wildfires exceeding 100 acres and on a sample of fires less than 100 

acres. It is appropriate to evaluate a diversity of fires, ranging from a spot fire suppressed by 

smokechasers or jumpers to a large project fire managed by an overhead team. 

Region 1 is proposing a post-fire evaluation of sites, which includes data collection on campsites and 

helispots, using Cole's Site Inventory System report INT-259, "Wilderness Campsite Monitoring 

Methods: A Source Book." Data collected will be added to inventories already completed for 

recreational impacts on wilderness. This information should provide managers with a clearer picture of 

which activities affect these "last, best places." 

Data Collection/Documentation/Recommendations 

This phase will be completed by a review of the rehabilitation plan and visit to the fire site as soon after 

demobilization as possible. An inventory of camps and helispots will be completed using Cole's 

Inventory System. This will also include an objective overview of other areas covered by the 

rehabilitation plan. 

Observations will be documented in a brief report to the line officer with a copy to the appropriate 

incident commander. In the report, the evaluator will include recommendations for ensuing fire 

suppression activities on similar lands. It is important that the evaluator recognize and commend the 

initial attack forces or overhead team for positive activities. Make special note of the extra efforts and 

sensitivity to suppression impacts. 

Below is a sample format for a Post-Fire Evaluation Report (Note: This report is reproduced in summary 

form): 

Post-Fire Evaluation for _________________ Fire 

Existing Direction Pertinent for Fire 

(Insert general and specific land use plan direction for the management area, including guidance 

for management concerns such as threatened or endangered plants or animals) 

Findings 

A. Resource Advisor Input and/or Actions 

(Include a synopsis of the actions of the resource advisor and his or her input into suppression 

strategies/tactics) 

B. Escaped Fire Situation Analysis (EFSA) 

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(How did the EFSA respond to the sensitivities of this fire area.) 

C. Line Direction to Incident Commander 

(Synopsis of what the line officer told the incident commander to do.) 

D. Incident Action Plan 

(Synopsis of how incident action plan responded to fire area.) 

On-site Verification 

(State here who made the field visit, the date, and what observations were made in terms of 

meeting the guidelines for MIST.) 

Overall Review Evaluation 

(Include overall findings of how well objectives were accomplished in terms of minimum impact 

activities.) 

Review Recommendations 

(What areas can we improve on, where did we do well, etc.) 

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