WILDLAND FIRE MANAGEMENT PLAN 

BIG OAKS NATIONAL WILDLIFE REFUGE 

2006 
DEPARTMENT OF THE INTERIOR FIRE MANAGEMENT PLAN 

U.S. FISH & WILDLIFE SERVICE BIG OAKS NWR

FEBRUARY 2006 ii 

WILDLAND FIRE MANAGEMENT PLAN 

BIG OAKS NATIONAL WILDLIFE REFUGE 

GREAT LAKES-BIG RIVERS REGION 

Prepared by: 

Prescibed Fire Specialist, Brian Winters Date 

Submitted by: 

Project Leader, Joseph Robb Date 

Reviewed by: 

Zone Fire Management Officer Date 

Reviewed by: 

Regional Fire Ecologist Date 

Concurred by: 

Regional Fire Management Coordinator Date 

Great Lakes and Big Rivers Region 

Concurred by: 

Chief, National Wildlife Refuge System Date 

Great Lakes and Big Rivers Region 

Approved by: 

Regional Director Date 

Great Lakes and Big Rivers Region
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TABLE OF CONTENTS 

 Page 

Table of Contents .................................................................................................................iii. 

List of Figures.......................................................................................................................v. 

List of Tables ........................................................................................................................v. 

I. INTRODUCTION........................................................................... 1. 

II. COMPLIANCE WITH U.S. FISH AND WILDLIFE SERVICE POLICY..... 3. 

III. DESCRIPTION OF REFUGE............................................................ 4. 

A. Location.............................................................................. 4. 

B. History................................................................................. 4. 

C. Climate................................................................................ 4. 

D. Topography/Soils/Water.......................................................... 6. 

E. Habitat Types........................................................................ 7. 

F. Historical/Ecological Role of Fire................................................ 8. 

G. Refuge Fire History................................................................. 8. 

H. Fire Effects........................................................................... 8. 

1. Vegetation and Fuels...................................................... 10. 

2. Wildlife....................................................................... 10. 

3. Air Quality.................................................................. 10. 

4. Soils........................................................................... 11. 

IV. REFUGE FIRE MANAGEMENT GOALS AND OBJECTIVES................. 11. 

A. Fire Management Goals........................................................... 11. 

B. Fire Management Objectives.................................................... 12. 

V. FIRE MANAGEMENT STRATEGIES................................................ 12. 

A. Overall Approach to Fire Management Strategies........................... 12. 

B. General Constraints on Strategy Options..................................... 13. 

C. Rationale for Selection of Strategies............................................ 14. 

D. Wildland Urban Interface......................................................... 14. 

VI. FIRE MANAGEMENT UNITS (FMU’S).............................................. 16. 

A. Fuel Model 1- Short Grass (NFDRS Models A&L).......................... 24. 

B. Fuel Model 3- Tall Grass (NFDRS Model N)................................. 24. 

C. Fuel Model 6- Shrubs (NFDRS Model F)...................................... 25. 

D. Fuel Model 8- Hardwood/mixed (NFDRS Model H or R).................. 25. 

E. Fire Behavior Fuel Model 9- Hardwoods (NFDRS Model K)............. 25. 

VII. FIRE MANAGEMENT AND RESPONSIBILITIES................................ 25. 

A. Fire Management Team Responsibilities...................................... 26. 

B. Refuge Fire Management Team................................................. 28. 

C. Prescribed Fire Validation........................................................ 29. 

D. Interagency Coordination......................................................... 30. 

VIII. WILDFIRE PROGRAM................................................................... 30. 

A. Fire Prevention...................................................................... 30. 

B. Fire Season........................................................................... 31. 
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C. Presuppression...................................................................... 31. 

1. Training..................................................................... 32. 

2. Annual Fire Readiness Needs........................................... 32. 

3. Fire Detection............................................................... 33. 

4. Regional and National Concerns....................................... 33. 

D. Emergency Presuppression....................................................... 33. 

E. Fire Detection....................................................................... 33. 

F. Pre-attack Plan...................................................................... 34. 

G. Fire Suppression.................................................................... 34. 

1. Considerationa and Constraints........................................ 36. 

2. Initial Attack............................................................... 37. 

3. Extended Attack........................................................... 37. 

4. Dispatch/Mobilization.................................................... 37. 

5. Minimum Impact Suppression Guidelines........................... 38. 

6. Rehabilitation............................................................... 39. 

7. Records and Reports......................................................40. 

H. Mechanical Fuel Treatment...................................................... 41. 

IX. MANAGEMENT IGNITED PRESCRIBED FIRE PROGRAM.................. 43. 

A. Long-term Prescribed Burn Program.......................................... 43. 

B. Description of Management Ignited Prescribed Burn Program.......... 43. 

C. Fire Management Unit (FMU) Correlation.................................... 44. 

D. Correlation with Fire Strategies and Objectives........................... 45. 

E. Resources Necessary to Plan/Execute/Evaluate Prescribed Burn 

Program.............................................................................. 45. 

F. Procedures Required for Prescribed Fire Implementation................ 47. 

G. Required Monitoring.............................................................. 47. 

H. Prescribed Fire Program Complexity.......................................... 48. 

I. Regional/National Preparedness Levels........................................ 50. 

J. Potential Impacts of Plan Implementation.................................... 50. 

K. Documentation Requirements................................................... 52. 

L. Reporting Requirements.......................................................... 53. 

M. Critique Format.................................................................... 53. 

X. WILDLAND FIRE USE.................................................................... 53. 

XI. WILDLAND FIRES MANAGED FOR RESOURCE BENEFITS................ 54. 

XII. AIR QUALITY/SMOKE MANAGEMENT GUIDELINES........................ 54. 

XIII. FIRE RESEARCH AND MONITORING............................................. 55. 

XIV. PUBLIC SAFETY........................................................................... 56. 

XV. PUBLIC INFORMATION AND EDUCATION...................................... 56. 

XVI. ARCHEOLOGICAL/CULTURAL/HISTORIC RESOURCES................... 57. 

XVII. FIRE CRITIQUES AND ANNUAL PLAN REVIEW............................... 58. 

XVIII.CONSULTATION AND COORDINATION.......................................... 58. 

XIX. APPENDICES................................................................................ 60. 

A. Endangered, Threatened, and Special Concern Species of Big Oaks NWR 61. 

B. Cooperative Agreements............................................................... 69. 

C. Normal Unit Strength (NUS) Inventory............................................ 106. 

D. Step-Up Plan.............................................................................. 110. 
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E. Wildfire Situation Analysis............................................................ 112. 

F. Delegation of Authority................................................................ 132. 

G. Individual Fire Report.................................................................. 134. 

H. Incident Status Summary.............................................................. 154. 

I. Fire Dispatch Plan.......................................................................158. 

J. Go/No-Go Checklist..................................................................... 161. 

K. Environmental Assessment............................................................ 163. 

L. Intra-Service Endangered Species Section 7 Consultation..................... 191. 

M. Bibliography.............................................................................. 199. 

LIST OF FIGURES 

Figure 1 Location Map – Big Oaks National Wildlife Refuge........................ 5. 

Figure 2 Vegetation Classes.................................................................. 9. 

Figure 3 Location Map – Fire Management Units....................................... 15. 

Figure 4 Vegetation Classes – Fire Management Unit 1................................ 17. 

Figure 5 Vegetation Classes – Fire Management Unit 2................................ 19. 

Figure 6 Vegetation Classes – Fire Management Unit 3............................... 21. 

Figure 7 Vegetation Classes – Fire Management Unit 4................................ 23. 

Figure 8 Location Map – Prescribed Fire Areas......................................... 46. 

LIST OF TABLES 

Table 1 Monthly Average Weather Data Taken at Louisville, KY National 

 Weather Service Office............................................................ 6. 

Table 2 Big Oaks National Wildlife Refuge Fire Qualified Staff Members....... 29. 

Table 3 Big Oaks National Wildlife Refuge Additional Staff Needs for Fire 

Management......................................................................... 29. 

Table 4 Complexity Analysis............................................................... 48.
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I. INTRODUCTION 

The Fire Management Plan (FMP) for Big Oaks National Wildlife Refuge (NWR) has been 

developed to provide direction in establishing operational procedures to guide all fire 

management activities. This plan will assist Big Oaks NWR in achieving resource management 

objectives as defined in several of the refuge’s interim management plans (i.e., Interim 

Comprehensive Conservation Plan). 

The FMP is subject to National Environmental Policy Act/National Historic Preservation Act 

compliance, since other related resource management plans do not address the environmental 

impacts of fire management activities. All potential environmental impacts resulting from this 

plan will be reviewed as required by law. An environmental assessment was completed in 2001 

for this plan (Appendix K) and was made available to the public for review and comment. The 

public will also be encouraged to comment on revisions to the plan during each 5-year revision. 

U.S. Department of the Interior policy states that refuge lands with vegetation capable of 

sustaining fire will develop a fire management plan (910 DM 1). The Fish and Wildlife 

Service’s Fire Management Handbook (621 FW 1.4-5) states that “every area with burnable 

vegetation must have an approved Fire Management Plan.” Big Oaks NWR’s FMP is a detailed 

program of action to implement fire management policies and objectives. Additionally, the 

protection of life, property, and natural resources from fire is of the highest priority. 

The mission of the U.S. Fish and Wildlife Service is: 

Working with others to conserve, protect, and enhance fish, wildlife, plants and their 

habitats for the continuing benefit of the American people. 

The mission of the National Wildlife Refuge System is: 

To administer a national network of lands and waters for the conservation, management, 

and where appropriate, restoration of the fish, wildlife, and plant resources and their 

habitats within the United States for the benefit of present and future generations of 

Americans. 

The mission of Big Oaks National Wildlife Refuge is: 

To preserve, conserve and restore biodiversity and biological integrity for the benefit of 

present and future generations of Americans. 

For Big Oaks NWR, the fire management program will be carefully guided by resource 

management objectives designed to offer the greatest protection and perpetuation of Big Oaks 

NWR’s natural resources and their associated natural processes. Long-term fire management 

needs to be formalized with an FMP regarding fire management practices and refuge habitat 

conditions. 

This FMP is governed by several related statutory authorities. These include the Clean Air Act, 
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the Clean Water Act, the Endangered Species Act, the National Environmental Policy Act, and 

the Antiquities Act. The Departmental Manual (910 DM) and the Fire Management Handbook 

(621 FW) contain other cited statutes authorizing and providing the means for prevention, 

presuppression, and suppression of wildfire on or threatening lands under the jurisdiction of the 

National Wildlife Refuge System. For ease of reference, these Authorities are listed below. 

1. Protection Act of September 20, 1992 (42 Stat. 857; 16 U.S.C. 594). 

2. McSweeney-McNary Act of 1928 (45 Stat. 221; 16 U.S.C. 487). 

3. Economy Act of June 30, 1932 (47 Stat. 417; 31 U.S.C. 1535). 

4. Taylor Grazing Act of June 28, 1934 (48 Stat. 1269; 43 U.S.C. 315). 

5. O. and C. Act of August 28, 1937 (50 Stat. 875; 43 U.S.C. 1181e). 

6. National Park Service Acts as amended (67 Stat. 495; 16 U.S.C. 1b) 

7. Federal Property and Administration Services Act of 1949 (40 U.S.C. 471; et seq.). 

8. Reciprocal Fire Protection Act of May 27, 1955 (69 Stat. 66; 42 U.S.C. 1856a). 

9. National Wildlife Refuge System Administration Act of 1966 as amended (80 Stat. 927; 16 

U.S.C. 668dd through 668ee). 

10. Alaska Native Claims Settlement Act of December 18, 1971 (85 Stat. 688; 43 U.S.C. 1601). 

11. Disaster Relief Act of May 22, 1974 (88 Stat. 143; 42 U.S.C. 5121). 

12. Federal Fire Prevention and Control Act of October 29, 1974 (88 Stat. 1535; 15 U.S.C. 2201). 

13. Federal Land Policy and Management Act of 1976 (90 Stat. 2743). 

14. Federal Grant and Cooperative Agreement Act of 1977 (P.L. 950224, as amended by P.L. 97-

258, September 13, 1982 (96 Stat. 1003; 31 U.S.C. 6301 thru 6308)). 

15. Alaska National Interest Lands Conservation Act of December 2, 1980 (94 Stat. 2371). 

16. Supplemental Appropriation Act of September 10, 1982 (96 Stat. 837). 

17. Wildlife Suppression Assistance Act of 1989 (P.L. 100-428, as amended by P.L. 101-11, April 7, 

1989).

18. Indian Self-Determination and Education Assistance Act (PL 93-638 as amended). 

19. National Indian Forest Resources Management Act (P.L. 101-630 November 28, 1990). 
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20. Tribal Self-Governance Act of 1994 (P.L. 103-413).

21. Department of the Interior and Related Agencies Appropriations Act (P.L. 103-32). 

II. COMPLIANCE WITH U.S. FISH AND WILDLIFE SERVICE POLICY 

Big Oaks NWR was established on June 30, 2000, as an overlay refuge on approximately 50,000 

acres north of the historic firing line of the former Jefferson Proving Ground (JPG). Through a 

real estate permit from the Department of the Army, the Service maintains Big Oaks NWR as 

habitat for endangered species, migratory birds and other wildlife in order to further the purposes 

of the Endangered Species Act and Migratory Bird Conservation Act. 

Big Oaks NWR provides habitats for, and subsequently attracts, an abundance of wildlife 

species. Twenty-four species of amphibians, 17 species of reptiles, 46 species of mammals, and 

over 200 species of birds have been recorded or can reasonably be expected to be present on the 

refuge for a portion of the year. 

Big Oaks NWR’s primary objective is to provide habitat and protection for endangered species, 

migratory birds, and species of management concern (Appendix A); and to insure the availability 

of these resources to the American people for their enjoyment now and in the future. 

Habitat management activities at Big Oaks NWR emphasize numerous goals, which include; 

enhancement of existing wetlands, active management of grassland and shrubland areas and the 

protection of late second-growth forests and wooded wetlands. All of these habitat management 

activities are designed to benefit populations of native wildlife species. 

The wide array of both resident and migratory species found on Big Oaks NWR is due to the 

varied habitat types found in the grassland/forest/wetland complex. The mix of forests, 

grasslands, forested wetlands, emergent marsh, and early successional stages of vegetation 

contributes to the species diversity of the wildlife community found at the refuge. 

 Fire is a critical ecological process in the management of early successional habitats required by 

many species of wildlife that are of management concern within the region. Historically, fire 

was an infrequent natural ecological process within the southeastern Indiana area that includes 

Big Oaks NWR; but, fire was commonly used by Native Americans around their settlements to 

alter habitat conditions for wildlife and for agriculture. Fire was used by the Army to decrease 

fuel levels and lessen the chance of wildfires associated with the Army’s munition testing 

mission prior to 1995. A by-product of the Army’s management by fire has been the 

establishment of many large areas of early successional habitats used by many of these species of 

management concern. 

The value of the habitat within Big Oaks NWR has been recognized at both the state and national 

levels. Big Oaks NWR has been named a Globally Important Bird Area by the National 

Audubon Society and the American Bird Conservancy due to large Henslow’s sparrow 

populations within refuge’s grassland areas. The Indiana Department of Natural Resources 
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states that, “JPG is indeed a natural treasure that contains a full array of the region’s natural 

communities and species assemblages.” 

III. DESCRIPTION OF REFUGE 

A. Location 

Big Oaks NWR is situated on approximately 50,000 acres in southeastern Indiana within 

Jefferson, Ripley and Jennings Counties. The refuge is about 55 miles north/northeast of 

Louisville, Kentucky and just north of the Ohio River (Figure 1). The nearest communities are 

Madison, Indiana, about 5 miles south of the southern boundary of the refuge, and Nebraska and 

Holton, Indiana, just north of the northern site boundary. The refuge is rectangular with the 

approximate dimensions of 15 miles north to south by about 6 miles east to west. Big Oaks 

NWR occupies land north of the firing line of the former Jefferson Proving Ground.

B. History 

Army use of the site began in late 1940 with procurement of the land. Prior to purchase by the 

Army, this land was used for farming and grazing at levels of use similar to what can be found 

outside the boundaries of the property today. The Army mission at JPG was to test and evaluate 

all types of munitions. JPG performed this function virtually continuously until September 1994 

when the last round was fired. The active use of the base by the Army stopped on 29 September 

1995. The Service began to manage the natural resources of the base on 1 October 1996 under a 

three-year Memorandum of Agreement (MOA) with the Army. At the end of the MOA period, 

the Service continued to manage all land north of the historic firing line but expanded its role to 

make the area a National Wildlife Refuge under a new MOA and a real estate license from the 

Army. 

C. Climate 

The area has a typical midwestern continental climate and the weather is quite variable because 

of the influx of high and low pressure systems and warm moist air from the Gulf of Mexico. 

Summers are generally quite warm, while the winters are moderately cold (Table 1). 

Precipitation is fairly uniform throughout the year, averaging 3 - 4 inches per month. Spring and 

summer thunderstorms push the monthly average over 4 inches for the March-June period, while 

the fall of the year sees monthly rainfalls close to 3 inches. Measurable snowfall can be 

experienced 
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throughout the November to March period, and averages about 16 inches annually.

Approximately 39 days per year see temperatures exceeding 90o Fahrenheit (F), with occasional 

occurrences in excess of 100o F. The record high of 105o F occurred in July 1954. Winter 

temperatures are mild, with occasional periods of very cold temperatures. Although temperatures 

less than zero are uncommon, the record low temperature in the area is -26o

 F occurring in 

January 1994. Southerly winds vary from about 6 - 10 miles per hour throughout the year, except 

for the months of February, March and August when the direction is from the north-northwest. 

Wind gusts up to 78 miles per hour have been recorded at the Louisville Station, the nearest 

source of long-term climatologic data. The strongest gusts are normally associated with 

thunderstorms. The area can experience occasional severe weather, including tornadoes. Several 

deaths from tornadoes occurred in Madison during 1974.

Table 1. Monthly average weather data taken at Louisville, KY National Weather Service 

office. 

MONTH 

AVG. DAILY 

MIN. TEMP 

(°F) 

AVG. DAILY 

MAX. TEMP 

(°F) 

AVG. 

MONTHLY 

MEAN TEMP 

(°F) 

AVG. 

PRECIPITATION 

(in) 

WIND 

VELOCITY 

(MPH) 

WIND 

DIRECTION 

 January 24.1 40.8 32.5 3.2 9.6 S 

February 26.8 45.0 36.0 3.2 9.6 NW 

March 35.2 54.9 45.1 4.2 10.2 NW 

April 45.7 67.5 56.7 4.0 9.8 SW 

May 54.7 76.3 65.5 4.6 8.0 SE 

June 63.3 84.0 73.8 4.1 7.4 S 

July 67.5 87.6 77.5 4.1 6.8 S 

August 66.0 86.7 76.5 3.4 6.5 N 

September 59.2 80.6 70.0 2.9 6.8 SE 

October 46.2 69.3 57.7 3.1 7.3 SE 

November 36.7 55.6 46.0 3.7 8.9 S 

December 28.9 45.5 37.2 3.4 9.3 S 

Annual 46.2 66.0 56.1 43.8 8.3 S

D. Topography/Soils/Water 

Ground elevations at Big Oaks NWR are generally between 850 - 900 feet Net Geodetic Vertical 

Datum, with elevations along the numerous streams flowing through the area being about 30 - 50 

feet lower. Site drainage is generally to the west and southwest. The area is in the headwaters of 

the White and Muscatatuck River Basin, a major tributary of the Wabash River, which in turn is 
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a major tributary of the Ohio River. Small to moderate size streams flowing through the 

Jefferson Proving Ground site include: Otter, Graham, Little Graham, Big and Middle Fork 

Creeks. 

Big Oaks NWR is located in the Till Plains section of the Central Lowlands physiographic 

province. The topography is dominated by gently rolling hills as a result of glacial processes. 

The bedrock exposed in Jefferson and Ripley counties belongs to the Ordovician, Silurian, and 

Devonian Systems of the Paleozoic era. These rocks were deposited about 450 to 350 million 

years ago as fine-grained sediments in shallow marine waters. The strata dip 20 - 25 feet per mile 

to the west. In the site area the rocks at the surface are the Silurian rocks. The Devonian bedrock 

is composed predominantly of limestones that exhibit karst features in some areas. 

Big Oaks NWR is underlain by deep, nearly level and gently sloping, poorly drained and 

somewhat poorly drained soils formed in a thin mantle of loess and in the underlying glacial 

drift. The surface layer of the soil is generally dark grayish brown or grayish brown, mottled, 

silty sandy clay, to a depth of 12 inches. The subsoil layer is composed of silty sandy clay that is 

light gray, yellowish brown, mottled, and friable. The subsoil layer extends below a depth of 7 

feet. The available water capacity of the soil is very high and the permeability is slow. There is a 

large area on the southern portion of the refuge with a perched, seasonal high water table at or 

near the surface during the winter and spring months. 

E. Habitat Types 

The following habitat types were derived from 1995 and 1997 aerial photos. Photo interpretation 

was completed in 1998. Classifications are comparable to those used in the US GAP Analysis 

Project. The distinction between forest and woodland is based on the amount of canopy closure. 

Forest areas have 60% or greater canopy closure and woodlands have 20% to 40% canopy 

closure. 

Upland forests comprise 27,400 acres (55%) of the 50,000 acre refuge (Figure 2). The upland 

forest classification includes both evergreen and deciduous species ranging in age from young 

(~15-30 years) to mature (>50 years). The primary evergreen species at Big Oaks NWR is 

eastern red cedar (Juniperus virginiana). Dominant deciduous trees include sweetgum 

(Liquidambar styraciflua), red maple (Acer rubrum) and black gum (Nyssa sylvatica) on poorly 

drained upland depression sites. Tulip poplar (Liriodendron tulipifera) and white ash (Fraxinus 

americana) are the species making up a majority of the young upland forests on well drained 

sites. White oak (Quercus alba), red oak (Quercus rubra) and shagbark hickory (Carya ovata) 

are the dominant species on intermediate sites and within some mature upland forests. American 

beech (Fagus grandifolia) and sugar maple (Acer saccharum) dominate the remainder of the 

mature upland forests. 

Our second most abundant habitat at Big Oaks NWR is grasslands. This habitat type makes up 

8,400 acres (17%) of Big Oaks NWR. The dominant grassland species appears to be 

broomsedge (Andropogon sp.). 
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Other habitat types at Big Oaks NWR include 5,200 acres (10%) palustrine wetland, 3,000 acres 

(6%) woodland, 6,200 acres (12%) early successional, and less than 250 acres each of open 

water, and bare soil areas. Woodland species composition is comparable to that of upland 

forest. 

The palustrine wetland category includes all growth stages of palustrine vegetation including 

early 

successional and forested wetland.

F. Historical/Ecological Role of Fire 

Historically, fire was a rare ecological process within the southeastern Indiana area that includes 

Big Oaks NWR. Fire was commonly used by Native Americans around their settlements to alter 

habitat conditions for wildlife and for subsistence agriculture; early settlers used fire to clear the 

land to establish farms. Fire was used (in combination with herbicides and mechanical 

disturbance) after acquisition of the property by the Army, in 1940, to decrease fuel levels and 

lessen the chance of wildfires associated with the Army’s munition testing mission. This 

disturbance regime has lead to the establishment of productive grassland and other early 

successional habitats within Big Oaks NWR.

G. Refuge Fire History 

Prescribed fires and wildland fires were an annual occurrence throughout much of the southern 

3/4 of Big Oaks NWR area during active Army management. Wildland fires occurred as a direct 

result of munitions testing and occasionally resulted from prescribed fires. Prescribed fires were 

used on an almost annual basis by the Army to reduce fuel loads and lessen the chance and/or 

severity of wildlands fires. Due to the presence of unexploded ordnance (UXO), wildland fire 

suppression occurred from roadways (or off roadways within controlled access areas) using nonearth disturbing methods (i.e. water and backfires). The extent of wildland fires resulting from 

munitions testing was never documented. There are no reports of wildland fires resulting in loss 

of life or damage to private property during the Army management of the Big Oaks NWR area.

Records documenting the extent of the Army’s prescribed fires are available from 1981 to 1997. 

Annual prescribed fires were primarily conducted in the spring but occasional fall fires are 

recorded. Total area burned varied from a high of approximately 15,000 acres in 1981 to a low 

of 

1,000 acres in 1988. Due to Army personnel constraints no burns were conducted in 1994 & 

1996. Beginning in spring 1998, the Service initiated its prescribed fire program with a 4,000 

acre burn. The Service continued its prescribed fire program in 1999 with a 7,400 acre burn. 

Since 2001, Big Oaks has burned on average 10,500 acres annually.

H. Fire Effects 
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1. Vegetation and Fuels 

Effects on vegetation and fuels vary depending on species, season and weather. Species of 

plants tend to be habitat specialists that have adapted to certain environmental conditions but 

many of these same plant species will tolerate a wide range of habitat conditions. Fires 

generally favor grasses and forbs that have adapted to disturbance and are shade intolerant. By 

reducing encroaching woody vegetation, fire will make available additional nutrients and 

available sunlight. Shade intolerant shrub species will quickly colonize a site to take advantage 

of the increase in nutrients, lack of competition and prevalence of sunlight. Within a fire prone 

or fire-managed landscape, this cycle of immediate beneficial response for grasses and slightly 

slower beneficial response to shade intolerant shrubs, will be continuously repeated. 

The quantity and moisture level of surface fuels will have an affect on the rate of spread and 

intensity of the fire. In general, the longer the period between burns the greater the accumulation 

of fuels and the greater the likelihood of a more severe fire once ignited. High intensity fires 

associated with drought or excessive fuel levels will tend to be stand replacing, radically 

replacing the present plant community with early successional, shade intolerant species. 

Depending on the management objectives and the original vegetation this may either be 

beneficial or detrimental. 

Depending on the intensity of the fire, larger trees may be minimally to severely effected. Fires 

of 

low to moderate intensity can cause high mortality in susceptible species of trees. Mature trees, 

especially those with thick insulating bark, have better survival rates

2. Wildlife 

In general, the effects of fire on wildlife are favorable, usually creating vital habitat and species 

richness. A wide variety of horizontal and vertical habitat components are created, with all fire 

regimes except at stand replacing level fire. This type of devastating fire has significant short 

term 

adverse impacts on wildlife habitat, including direct mortality, often displacing species. Over 

time, the site recovers and has positive effects on wildlife, favoring early successional species.

3. Air Quality 

The effects are minimal, with all but the most intense wildfires, where visual impairment or air 

quality are compromised over the duration of the incident. Adverse air quality associated with 

prescribed burning usually is minimal, as the units are burned under a developed prescription 

favorable for good smoke dispersal and total consumption of fuels less than 1 inch in diameter. 

In 

addition, the majority of the units burned are isolated (> 1 mile from the boundary).
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4. Soils 

Adverse impacts are usually minimal, except under dry conditions where soil moisture is very 

low 

and deep burning of the organic layer can occur. Wildland fires and prescribed fires rarely 

consume more than 50 percent of the duff/litter layer and rarely transfer significant amounts of 

heat for an extended period of time.

IV. REFUGE FIRE MANAGEMENT GOALS AND OBJECTIVES 

In accordance with the goals and objectives of the NWR System, Big Oaks NWR is committed 

to the protection of life, property and the environment, as well as perpetuating natural processes. 

By Service policy the primary objective of this FMP is wildland fire suppression, the use of 

prescribed fire for habitat and wildlife management is a secondary objective. 

In all suppression activities, the presence of UXO and depleted uranium (DU) 

contamination must be considered. All areas of Big Oaks NWR are considered 

contaminated with UXO, therefore, no earth-disturbing measures may be used to control 

wildland fires. DU is located on the DU Impact Area currently regulated by the Nuclear 

Regulatory Commission License (Number Sub-1435) to the Army. Evidence suggests that 

DU is not readily transported in smoke associated with burning of natural vegetation in an 

environment similar to that occurring at the refuge (Williams et. al. 1998).

A. Fire Management Goals 

The fire management goals for Big Oaks NWR are: 

1. The protection of human life, both of the firefighter and the public within and 

adjacent to refuge lands. 

2. The protection of property and natural/cultural resources within and adjacent to 

refuge lands. 

3. Manage the use of fire to compliment or augment other means of maintaining 

refuge habitat to achieve identified management goals. 

4. Develop and implement a process to insure the collection, analysis and 

application of high quality fire management information needed for sound 

management decisions. 
DEPARTMENT OF THE INTERIOR FIRE MANAGEMENT PLAN 

U.S. FISH & WILDLIFE SERVICE BIG OAKS NWR

12 FEBRUARY 2006 

5. To utilize fire for the reduction of fuels in areas of Big Oaks NWR which may 

pose risks to various types of resources both human and natural. 

B. Fire Management Objectives 

The fire management objectives for Big Oaks NWR are: 

1. Protect important scientific, cultural, historic and prehistoric, and scenic 

resources, private lands, and visitor, administrative and other facilities/structures 

from wildfire. 

2. Prevent unplanned human-caused ignitions. 

3. Maintain a diversity of plant communities and associated wildlife species through 

the use of prescribed fire. 

4. Utilize prescribed fire as an integral part of a management program to enhance 

habitat critical to the recovery of endangered, threatened, rare or special concern 

species as required. 

5. Control and eliminate, if possible, through the use of prescribed fire, plant species 

considered invasive, exotic or nuisance. 

6. Implement a habitat monitoring program for all prescribed burn sites. Maintain a 

database at the refuge with, at a minimum, the following information: date of 

burn; weather conditions; fire behavior; and pre and post burn photos. 

7. Promote an interagency approach to managing fires on an ecosystem basis. 

8. Integrate fire management with all other aspects of refuge management. 

V. FIRE MANAGEMENT STRATEGIES 

A. Overall Approach to Fire Management Strategies 

Fire suppression will continue to be the primary objective of the fire management program. 

Presuppression and prevention will continue to be Big Oaks NWR’s primary means of 

preventing the spread of wildland fires. Overall, the FMP is designed to implement a safe, costeffective program of fire protection, fuels management and resource enhancement through 

management-ignited prescribed fire strategies. These strategies include: 
DEPARTMENT OF THE INTERIOR FIRE MANAGEMENT PLAN 

U.S. FISH & WILDLIFE SERVICE BIG OAKS NWR

13 FEBRUARY 2006 

1. Suppress all human-caused fires commensurate with the values at risk, through 

the use of control, contain, and confine suppression alternatives. In all 

suppression activities, the presence of UXO and depleted uranium (DU) 

contamination must be considered. 

2. Determine specific fuel loadings in high-risk areas in relationship to natural 

conditions and to conditions that may be determined hazardous based on values or 

risks. Utilize hazard reduction prescribed burns and mechanical means as 

treatment methods to reduce excessive fuel hazards. 

3. Continue to develop and maintain inter-agency coordination to promote local, 

regional and national cooperation. Based on local NWR conditions, contribute 

firefighting resources to meet the needs at Regional and National levels. 

4. Initiate a habitat improvement program through management-ignited fire for the 

purposes of optimizing grassland habitat for the benefit of a variety of upland 

wildlife species, such as Henslow’s sparrow. 

B. General Constraints on Strategy Options 

Refuge-wide constraints are primarily the result of UXO contamination. Due to the past usehistory of Big Oaks NWR, UXO contamination can be encountered within any portion of the 

refuge. Similarly, DU contamination is located within the DU Impact Area. Due to the dangers 

associated with fire and fire suppression in combination with UXO and DU, the following 

restrictions are in place to protect the safety of any persons involved in suppression activities: 

1. Earth-disturbing fire suppression techniques may never be used within Big Oaks 

NWR unless done using armored equipment or within an area that has been 

cleared of UXO and DU. 

2. All suppression must occur from established roadways within closed areas, or by 

foot within unrestricted areas. 

3. The preferred and safest method for suppression of wildland fires, within both 

closed and unrestricted areas, will be the use of fire to make a black-line along 

established roadways (or at the discretion of the Refuge Manager along natural 

features) to widen existing firebreaks as needed to prevent the spread of (Contain

strategy) or to monitor fires to ensure confinement within (Confine strategy) a 

designated area. 
DEPARTMENT OF THE INTERIOR FIRE MANAGEMENT PLAN 

U.S. FISH & WILDLIFE SERVICE BIG OAKS NWR

14 FEBRUARY 2006 

4. Due to the possibility of heat induced detonation of UXO, a UXO hazard zone, 

covering all areas within 4,000 feet of open flames, will be established. Entry 

into this zone is considered hazardous and may only be permitted by the Refuge 

Manager or his designee. Entry will be allowed only after wildfire “size-up” that 

includes an analysis of resources threatened and risk to personnel. 

5. No unapproved prescribed fires will be ignited between the periods of 15 April to 

15 September due to the presence of Federally endangered Indiana bats within 

portions of many burn units. Fires during this time period would require an intraService consultation with the Ecological Services Field Office and an Endangered 

Species Permit for this activity. 

C. Rationale for Selection of Strategies 

In most cases, the suppression of wildfires, under a confine strategy, is the least costly and the 

most appropriate for Big Oaks NWR. In all but the most severe wildfire cases, natural and 

manmade features within the refuge would be sufficient to allow the use of the confine strategy. 

To maximize the effectiveness of the confine strategy it is necessary that maintenance (grading 

and mowing) on 90 - 100 miles of roads occur on an annual basis. 

Modifying fuels through prescribed fire provides additional support of wildland fire suppression 

through defensible barriers and buying time for suppression forces to arrive. By reducing fuel 

hazards, fire intensities are lower and a fire is easier to contain in all but the most severe fire 

weather years. A detailed inventory to identify high fuel loads and their relationship to 

defendable barriers is needed. Once these areas are identified they should be evaluated for the 

most cost efficient disposal method in order to reduce the risk. 

Habitat maintenance through the use of fire is of benefit to early successional species and 

promotes maximum diversity on a local scale by breaking up large continuous blocks of shade 

tolerant stands. The role of fire as it applies in regional habitat diversity and region-wide habitat 

goals should be evaluated in other management documents to ensure that fire is used to 

maximize these goals. 

D. Wildland Urban Interface 

Wildland Urban Interface (WUI) is defined as the area where houses meet or intermingle 

with undeveloped wildland vegetation. This makes the WUI a focal area for human-environment 

conflicts such as wildland fires, habitat fragmentation, invasive species, and biodiversity decline. 

FIREWISE is an excellent community safety program developed to educate the public to the 

wildland urban interface and corrective measures needed. Additional examples include working 

toward a comprehensive social awareness and support system to educate the public concerning 

the benefits of management ignition in fire adapted ecosystems. 
DEPARTMENT OF THE INTERIOR FIRE MANAGEMENT PLAN 

U.S. FISH & WILDLIFE SERVICE BIG OAKS NWR

15 FEBRUARY 2006 
DEPARTMENT OF THE INTERIOR FIRE MANAGEMENT PLAN 

U.S. FISH & WILDLIFE SERVICE BIG OAKS NWR

16 FEBRUARY 2006 

The remote location of the refuge lands somewhat diminishes the WUI presence but still creates 

the need to reduce wildland and urban intermix fire threats. The fire management program will 

mitigate any interface risks by a combination of mechanical fuels treatments near any buildings 

and prescribed fire to reduce and eliminate hazard fuel loadings while creating wide buffers 

around developed areas and adjacent to private property.

VI. FIRE MANAGEMENT UNITS (FMU’S) 

Big Oaks NWR is subdivided into 4-FMU’s (Figure 3). There is a 1038 acre Air National Guard 

(ANG) range inholding consisting of 2 separate range areas and 1 historic structure. The first 

range (983 acres) is located adjacent to FMU’s 1&2, the historic structure is located within a 5 

acre area in FMU 2 and the remaining range (50 acres) is within FMU 3. These range areas and 

this structure are excluded from Big Oaks NWR and subsequently from this FMP. The ANG 

maintains firebreaks around structures within their ranges due to the frequent outbreak of fires 

associated with their mission. Currently, no firebreaks entirely separate the ANG range areas 

and the historic structure from the refuge.

The size, linear shape, differing fire management strategies and the known hazards of Big Oaks 

NWR were considered when evaluating overall resource management strategies, vegetation 

characteristics and location of major access routes to define FMU boundaries. Other criteria, 

such as proximity to human development, were not significant enough to further define 

additional FMU’s. 

ALL FMU’S ARE CONSIDERED CONTAMINATED WITH UXO. THE DU IMPACT AREA IS 

LOCATED WITHIN FMU-3 AND FMU-4. DESIGNATED RESTRICTIONS ARE TO BE FOLLOWED 

WHEN CONDUCTING SUPPRESSION ACTIVITIES WITHIN ANY AREA OF BIG OAKS NWR. 

Fire Management Unit 1

FMU-1 is 13,000 acres and is 75% forested (Figure 4). Most structures within this FMU are 

located just north of K Road (south boundary of the FMU) within the ANG Range. Firebreaks 

maintained by the ANG are sufficient to prevent damage to structures in all but the most severe 

wildfires. One additional structure, a picnic shelter, is located within the refuge boundary and 

adjacent to Old Timbers Lake at the end of Snag Hole Point Road. Damage to this structure is 

considered unlikely in all but the most severe wildfire situations. 

Roads and their adjacent mowed grassy areas form 75% of the boundary of this FMU. A 

firebreak is maintained adjacent to the perimeter fence for the remaining 25% of the boundary of 

this FMU. Access to the interior of most areas of this FMU is severely limited. Initial attack 

response times are estimated to take 2 to 2.5 hours. This FMU is the unit with the least amount 

of UXO contamination. This FMU is the only unit in which all suppression strategies may be 

allowed if the Refuge Manager believes that the resources involved necessitate the use of these 

strategies. Use of earth disturbing tools and equipment would still be prohibited. 
DEPARTMENT OF THE INTERIOR FIRE MANAGEMENT PLAN 

U.S. FISH & WILDLIFE SERVICE BIG OAKS NWR

17 FEBRUARY 2006 
DEPARTMENT OF THE INTERIOR FIRE MANAGEMENT PLAN 

U.S. FISH & WILDLIFE SERVICE BIG OAKS NWR

18 FEBRUARY 2006 

Fires within this FMU are expected to exhibit relatively low intensity (flame lengths) and 

generally low to moderate rates of spread. Exceptions to this will be within areas of steep 

topography in the northwest corner of the FMU. Most fires are expected to be largely confined 

to the leaf litter with occasional flare-ups caused by pockets of evergreens. Roads and 

maintained firebreaks around the perimeter of Big Oaks NWR are sufficient to prevent the 

spread of all but the most severe wildfires. The potential for spread to adjacent private 

agriculture lands is low. Should the appropriate management response indicate that suppression 

is needed, the suppression strategy most appropriate for FMU-1, will usually be a Confine

strategy. 

Fire management objectives for this unit are: 

1. The protection of human life from wildland fire. 

2. The prevention of property loss or resource damage from wildland fire. 

3. Confine wildfires in the FMU to the smallest size possible through the use 

of roads and natural features. 

4. Retire existing grassland habitats and allow natural succession to convert 

these areas to forest habitat. 

5. Maintain refuge roads as firebreaks on an annual basis and refuge 

boundary firebreaks on a 2 to 3 year rotation. 

Fire Management Unit 2

FMU-2 is approximately 15,000 acres in size, and is located south of K Road and north of H 

Road (Figure 5). Roads make up the boundaries of this FMU and are maintained annually. 

Access to the perimeter of this FMU is excellent but access to most interior areas is severely 

limited. Initial attack response times are estimated to take 2 to 2.5 hours. Two storage barns 

(wood frame with metal siding and roofs) and one historic structure, Old Timbers Lodge (stone 

and timber construction with shingle roof), are located within this FMU. The 2 barns are located 

south of K Road, each approximately 1 mile from the respective east and the west perimeters. 

The historic lodge is located 2 mile south of K Road just northwest of Graham Creek within an 

Air National Guard inholding. Access to the lodge is a single lane road. Threat to structures 

within Big Oaks NWR from wildfires is considered low in all but the most extreme conditions. 

Fuel types within this FMU vary from perennial grasses to mature forests and form a mosaic of 

habitat types within the unit. Fires of moderate intensity with moderate to high rates of spread 

would be expected within areas of grass and shrub habitats while low intensity fires with low to 

moderate rates of spread would be likely within forested areas. The potential for spread to 

adjacent private agriculture lands is low. Should the appropriate management response indicate 

that suppression is needed, the suppression strategy most appropriate for FMU-2, will usually be 

a Confine strategy. 
DEPARTMENT OF THE INTERIOR FIRE MANAGEMENT PLAN 

U.S. FISH & WILDLIFE SERVICE BIG OAKS NWR

19 FEBRUARY 2006 
DEPARTMENT OF THE INTERIOR FIRE MANAGEMENT PLAN 

U.S. FISH & WILDLIFE SERVICE BIG OAKS NWR

20 FEBRUARY 2006 

Fire management objectives for this unit are: 

1. The protection of human life from wildland fire. 

2. The prevention of property loss or resource damage from wildland fire. 

3. Confine wildfires in the FMU to the smallest size possible through the use 

of roads and natural features. 

4. Maintain or increase existing grassland and maintain or decrease existing 

woodland and early successional vegetation. Allow existing grasslands 

east of Little Graham Creek to convert to forest habitat through natural 

succession. 

5. Maintain refuge roads as firebreaks on an annual basis. 

Fire Management Unit 3

This 11,000 acre FMU is bounded on the north by H Road and to the south by Big Creek 

and D Road (Figure 6). Perimeter roads bound the unit to the west. Access to the FMU 

is excellent at the north, south and west perimeters but poor along the east perimeter. 

Elsewhere within the unit access is considered good. Initial attack response times are 

estimated to take 2 to 2.5 hours. No structures exist within the FMU that would be 

negatively affected by fire. Several abandoned “igloos” (vegetated, earthen covered, 

concrete bunkers) and elevated steel observation bunkers exist within the unit but would 

not be affected by fire. 

Fuel types within this FMU vary from grassland to forest forming a mosaic of 

successional habitats within the unit. Fires of moderate intensity with moderate to high 

rates of spread would be expected within areas of grass and shrub habitats while low 

intensity fires with low to moderate rates of spread would be likely within forested areas. 

 The potential for spread to adjacent private agriculture lands is low. Should the 

appropriate management response indicate that suppression is needed, the suppression 

strategy most appropriate for FMU-2, will usually be a Confine strategy. 

 

 

 

 

 
DEPARTMENT OF THE INTERIOR FIRE MANAGEMENT PLAN 

U.S. FISH & WILDLIFE SERVICE BIG OAKS NWR

21 FEBRUARY 2006 

 
DEPARTMENT OF THE INTERIOR FIRE MANAGEMENT PLAN 

U.S. FISH & WILDLIFE SERVICE BIG OAKS NWR

22 FEBRUARY 2006 

Fire management objectives for this unit are: 

1. The protection of human life from wildland fire. 

2. The prevention of property loss or resource damage from wildland fire. 

3. Confine wildfires in the FMU to the smallest size possible through the use 

of roads and natural features. 

4. Allow smaller existing grasslands to convert to forest or woodland habitat 

through natural succession with the exception of larger grasslands (e.g., 

along the southern boundary) of the FMU that may be maintained by 

prescribed fire. 

5. Maintain refuge roads as firebreaks on an annual basis. 

 

Fire Management Unit 4

This 11,000 acre FMU is bounded on the north by D Road and Big Creek and to the 

south by Firing Line Road (Figure 7). Perimeter roads bound the unit to the east and 

west. Access to the FMU is excellent at the perimeters and good elsewhere within the 

unit. Initial attack response times are estimated to take 2 to 2.5 hours. Structures within 

the FMU that could be negatively affected by fire are located along the southern 

boundary of this FMU and include an historic one room stone schoolhouse with a 

shingled roof, several concrete structures with metal or concrete roofs and one brick 

structure with asbestos shingles. Several abandoned “igloos” (vegetated, earthen 

covered, concrete bunkers) and elevated steel observation bunkers also exist within the 

unit but would not be affected by fire. 

Fuel types within this FMU vary from grassland to forest forming a mosaic of 

successional habitats within the unit. The west perimeter of the unit is mostly forested 

with the center of the unit being comprised of mostly grassland and savannah habitats. 

Fires of moderate intensity with moderate to high rates of spread would be expected 

within areas of grass and shrub habitats while low intensity fires with low to moderate 

rates of spread would be likely within forested areas. The potential for spread to adjacent 

private agriculture lands is low. Should the appropriate management response indicate 

that suppression is needed, the suppression strategy most appropriate for FMU-2, will 

usually be a Confine strategy.
DEPARTMENT OF THE INTERIOR FIRE MANAGEMENT PLAN 

U.S. FISH & WILDLIFE SERVICE BIG OAKS NWR

23 FEBRUARY 2006 
DEPARTMENT OF THE INTERIOR FIRE MANAGEMENT PLAN 

U.S. FISH & WILDLIFE SERVICE BIG OAKS NWR

24 FEBRUARY 2006 

Fire management objectives for this unit are: 

1. The protection of human life from wildland fire. 

2. The prevention of property loss or resource damage from wildland fire. 

3. Confine wildfires in the FMU to the smallest size possible through the use 

of roads and natural features. 

4. Maintain or increase existing grassland and maintain or decrease existing 

woodland and early successional vegetation. 

5. Maintain refuge roads as firebreaks on an annual basis. 

A. Fuel Model 1- Short Grass (NFDRS Models A&L) 

Most areas with Fuel Model 1 are former impact fields. Due to chemical application and 

mechanical manipulation during Army use, these fields have remained bare for several years 

following cessation of use. These areas are slowly becoming dominated by grasses and forbs. 

FMU-1, FMU-2, and FMU-4 are where this model is most abundant. Fuel loading is generally 

under 4,000 lb/acre. High spread rates can be expected, but fire intensities remain low and short 

in duration. Most fields are small in size, under 50 acres, and will spread into another fuel type 

or natural barrier effectively slowing the forward rate of spread. Flame lengths may approach 4 

feet with a ROS in excess of 50 chains/hour with an associated wind event. A fire in this type 

usually will do little resource damage. 

B. Fuel Model 3- Tall Grass (NFDRS Model N). 

This model applies to grasslands found in many upland fields and in similar habitats with species 

1 or more meters in height, with a total load in excess of 4,000 lb/acre. This model may include 

cattail stands. This model is abundant in all FMU’s. Dominant vegetation types include 

broomsedge and several species of goldenrods. This fuel model is among the most valuable 

wildlife habitat within Big Oaks NWR. Because amounts of this fuel type will increase with fire, 

the relative hazard of wildfires in this fuel model will also increase. Within most areas 

containing FM 3, a woody shrub component is often present thus increasing the total fuel load. 

Fires in this fuel are the most intense of the grass group and display high rates of spread under 

the influence of wind. Windy spring or fall days with warm temps and low humidity will make 

this fuel type hazardous. With continuous stands of tall grass, fire will carry across standing 

water under sustained wind conditions. Expect an extremely fast moving fire front in excess of 

100 chains/hour, with flame lengths over 12 feet. 
DEPARTMENT OF THE INTERIOR FIRE MANAGEMENT PLAN 

U.S. FISH & WILDLIFE SERVICE BIG OAKS NWR

25 FEBRUARY 2006 

C. Fuel Model 6- Shrubs (NFDRS Model F) 

All FMU’s have this vegetation component to one extent or another, however it is not a 

dominant vegetation type. Fire typically moves through this fuel model by creeping through the 

litter layer with low flame heights and rates of spread. During dry conditions, and high winds, 

fire can move through the crowns of shrub communities with rates of spread over 100 

chains/hour and 12 feet flame lengths. 

D. Fuel Model 8- Hardwood/mixed (NFDRS Model H or R)

Closed to semi-closed canopy stands of hardwoods and conifer associates best represent this fuel 

model at Big Oaks NWR. Litter layer is compact, composed of leaves, needles and twigs.

Fires will normally exhibit low rates of spread, under 5 chains/hour, with flame lengths less than 

2 feet, except when an occasional fuel concentration is encountered. Fires normally will remain 

on the surface, except under dry conditions where fire may burn through the duff layer, which 

may be deep. Under severe weather conditions involving high temperatures, low relative 

humidity and high winds, moderate fire behavior may occur and pose fire hazards. Occasional 

flare-ups are then possible when fire encounters heavier fuel concentrations. 

E. Fire Behavior Fuel Model 9- Hardwoods (NFDRS Model K). 

The vegetation component of this fuel model is open or closed hardwood stands and mixed 

stands with leaf off. The litter layer often contains dead leaves, which are subject to moving 

around under windy conditions. Scattered concentrations of dead-down woody material are 

greater than in Fuel Model 8 above. 

Fires in this fuel type will have a higher rate of spread due to the deciduous leaf litter layer and 

the increased oxygen available. Under windy conditions expect spotting problems from rolling 

and blowing leaves. Fires will generally remain on the surface, and can be a problem in the 

spring, before green-up. This fuel type can also be a problem in the fall, if normal moisture is 

not received and an unwanted ignition source is present. Expect flame lengths in access of 2 feet 

with a ROS of 5 to 10 chains/hour as a rate of spread and containment problems under windy 

conditions.

VII. FIRE MANAGEMENT AND RESPONSIBILITIES 

The suppression of wildfire is given priority over all activities except the safeguarding of human 
DEPARTMENT OF THE INTERIOR FIRE MANAGEMENT PLAN 

U.S. FISH & WILDLIFE SERVICE BIG OAKS NWR

26 FEBRUARY 2006 

life (910 DM 1.4.ET. SEQ). It is expected that all refuge employees (with exception of 

administrative personnel) will be fire-trained and available to assist with emergency suppression 

as needed on Big Oaks NWR. Fire duty assignments will include only those duties for which 

each employee is qualified according to guidelines specified in the National Interagency Fire 

Qualification Subsystem Guide (PMS 310-1). Individuals must meet training, experience, and 

physical fitness requirements. Depending on fire complexity, several non-line support functions 

may be necessary. 

 A. Fire Management Team Responsibilities 

Refuge Manager (RM): The RM, stationed at Big Oaks NWR, is responsible for the 

full range of management duties within Big Oaks NWR including fire management 

activities that implement an effective fire management program. Fire management duties 

and responsibilities will include: 

-Approving and signing the Delegation of Authority and “Go-No Go” checklist. 

-Acting as a resource advisor on initial and extended attack during wildfires and 

prescribed burns. 

-Approving all Prescribed Fire Plans. 

-Ensuring that an approved FMP is prepared for the refuge. 

 -Assign fire management responsibilities as a collateral duty to non-fire funded staff. 

-Ensuring that all fire funded staff are made available for dispatch to offrefuge/interagency wildland and prescribed fire management operations. 

-Meeting fire management training requirements established by the service for their 

position. 

- Controlling entrance into any UXO hazard zone (as defined in Fire Management 

Strategies under General Refuge-Wide Constraints Item 4). (621 FW 1.5F) 

Prescribed Fire Specialist (PFS): The Prescribed Fire Specialist assigned to Big Oaks 

NWR has primary responsibility for fire program management over Big Oaks NWR (all 

FMU’s). He will direct field operations in resource protection and implement and carry 

out the FMP. This position is responsible for the day to day implementation of the fire 

suppression program. Other duties and responsibilities will include: 

-Ensuring fire readiness of unit personnel, supplies, equipment and apparatus. 

-Acting as an Initial Attack Incident Commander Type IV on wildfires, a Resource 

 Advisor on extended attack project sized wildfires and serve as prescribed Type 2 burn 

 boss on refuge and non-refuge burns. 

- Implementing Big Oaks NWR annual prescribed burn program. 

-Recommending to RM the scheduling and implementation of management-ignited 

 prescribed fire needs. 

-Maintaining all fire related databases. 
DEPARTMENT OF THE INTERIOR FIRE MANAGEMENT PLAN 

U.S. FISH & WILDLIFE SERVICE BIG OAKS NWR

27 FEBRUARY 2006 

-Managing the fire budget. 

-Coordinating and documenting training needs and experience records for refuge staff. 

-Writing refuge prescribed fire plans and related documents. 

-Maintaining safety first as the foundation for all aspects of fire management. 

-Ensuring that all fire management policies are understood, followed and coordinated. 

 

Fire Program Technician (FPT): This position, stationed at Big Oaks NWR, is 

responsible for maintenance of fire related equipment (pumper, pumps, tools, etc.) and 

maintaining an inventory of the fire cache. This position relays information to the PFS to 

determine needs for NUS or for the fire cache. This position assists the PFS with all fire 

related activities including supervising the seasonal firefighters. The FPT also serves as a 

prescribed fire crew leader and is responsible for operation of the specialized fire 

equipment. 

Administrative Technician (OT): Responsible for posting of firefighter time and 

meeting procurement needs at the local level during an on-going incident. The OT serves 

as communications link for on-going wildfires and prescribed fires. The OT maintains a 

unit log during a wildfire. 

Regional Fire Management Coordinator (RFMC): The RFMC provides coordination, 

training, planning, evaluation, and technical guidance for the region and is available to 

provide assistance for intra-agency and interagency wildland fire management needs. The 

RFMC will meet qualification requirements established by the service for the position. 

The RFMC, through written delegation by the Regional Director, is delegated authority to 

represent the region on the Geographic Multi-Agency Coordinating Group (GMAC 

Group). The RFMC is responsible for implementing the decisions of the MAC Group as 

they affect U.S. Fish and Wildlife Service areas. The decisions of the GMAC Group 

include the prioritizing of incidents and the allocation or reallocation of firefighting 

resources to meet wildland fire management priorities. 

 

Zone Fire Management Officer (ZFMO): The ZFMO, stationed in Mio, Michigan, is a 

shared resource for Region 3 refuges, including Big Oaks NWR. The ZFMO advises the 

RM or staff on matters relative to fire planning, fire preparedness, suppression and 

prescribed burning. The ZFMO’s duties will also include: 

-Assisting in intra-agency and interagency fire management needs. Supplying technical 

assistance relative to fire management activities and also advises the RM on priorities, 

strategies and tactics to reduce adverse fire impacts. 

-Assisting with oversight and coordination of Big Oaks NWR’s fire management 

program, including wildfires, prescribed burning, WUI projects and fire related dispatch 

and mobilization. 

-Representing Big Oaks NWR and coordinating fire related activities with: other refuges, 
DEPARTMENT OF THE INTERIOR FIRE MANAGEMENT PLAN 

U.S. FISH & WILDLIFE SERVICE BIG OAKS NWR

28 FEBRUARY 2006 

regional fire coordinator, and local, state and other federal fire organizations as directed 

by the RM or Regional Office. 

-Maintains training and qualification records for refuge personnel; coordinating refuge 

fire training; maintains fire records and systems; assists developing and implementing 

fuel management and prescribed fire projects; coordinates mobilization of refuge 

resources for off-refuge assignments.(621 FW 1.5.G) 

-Providing direction, supervision and leadership to Zone Fire Management Staff. 

-Coordinate with and provide timely and accurate reports to Project Leaders, 

Deputy Project Leaders and Appropriate Refuge Managers on all activities of the zone 

and personnel. 

-Coordinating and overseeing fire budgets to assure the fiscal guidelines are adhered 

 to within the Region. 

-Coordinating all prescribed fire activities for the district including requests and oversight 

of funding for Hazardous Fuel and WUI projects. 

-Requesting and overseeing distribution of Severity and Emergency Pre-suppression 

Funding for District Fire and Aviation. 

-Ensure all district incidents are managed in a safe and cost-effective manner. 

-Coordinating, propositioning, sending and ordering fire and aviation resources in 

response to current and anticipated district, regional and national fire conditions.

Seasonal Fire Technicians (SEAS): Big Oaks NWR currently has 4 Seasonal Fire 

Technicians that work during the spring prescribed fire season. Each position is currently 

funded for 7 pay periods. These positions are intended to help the refuge implement the 

prescribed fires, suppress wildfires and maintain equipment and facilities. Hiring these 

seasonal fire technicians will be done on a yearly basis and be dependent on funding. 

B. Refuge Fire Management Team 

The Big Oaks NWR fire management team consists of the individuals listed above, assigned 

under the supervision of the RM. Big Oaks NWR staff members will change periodically, as do 

individual fire qualifications, we have attempted to list individuals by name, position and 

qualifications in this section (Table 2). However, this information will change periodically and 

the most up-to-date information will be found in the mobilization directories prepared on an 

annual basis. 
DEPARTMENT OF THE INTERIOR FIRE MANAGEMENT PLAN 

U.S. FISH & WILDLIFE SERVICE BIG OAKS NWR

29 FEBRUARY 2006 

Table 2. Big Oaks National Wildlife Refuge fire qualified staff. 

Employee Position Qualification Physical Fitness Level 

Joe Robb Refuge Operations 

Specialist 

Firefighter 2 

RXB3 

Arduous 

Brian Winters Prescribed Fire 

Specialist 

ICT4, RXB2 

ENGB, 

STLD(T) 

Arduous 

Dave Jones Fire Program 

Technician 

Firefighter 1 Arduous 

Dale Sides (3 vacant) Seasonal Firefighters Firefighter 

Type 1 or 2 

Arduous 

Dan Matiatos Refuge Operations 

Specialist 

Firefighter 1 Arduous 

Jason Lewis Refuge Biologist Firefighter 2 Arduous 

Janet Pike Administrative 

Technician N/A N/A 

The current refuge staff is qualified to conduct prescribed burns of moderate complexity. 

Personnel and resources on hand are insufficient to plan and conduct more complex prescribed 

burns and suppress wildland fires following initial attack. Additional staff needed to fully 

implement this Fire Management Plan are described in Table 3. 

Table 3. Big Oaks National Wildlife Refuge additional staff needs for fire management. 

Position Pay Grade Status 

Career Seasonal Firefighter GS 5/6/7 Permanent Seasonal (14 pay 

periods) 

C. Prescribed Fire Validation 

The PFS at Big Oaks NWR advises the RM on issues pertaining to prescribed fire validation. 
DEPARTMENT OF THE INTERIOR FIRE MANAGEMENT PLAN 

U.S. FISH & WILDLIFE SERVICE BIG OAKS NWR

30 FEBRUARY 2006 

This allows the RM to confirm that burns will be within prescription and make appropriate 

decisions on the daily application of prescribed fire as appropriate. 

 D. Interagency Coordination. 

Big Oaks NWR currently has a small number of fire-qualified individuals and a minimum base 

of equipment for suppression activities. The refuge depends heavily on other agencies for 

suppression activities, especially with wildfire incidents stretching beyond initial attack to an 

extended attack situation. 

Big Oaks NWR has a signed Cooperative Fire Agreement with a local Volunteer Fire 

Department (Appendix B). For a per response payment, their equipment and manpower are 

available to support refuge fire personnel. This agreement is updated by the Regional FMO by 

April 1 of each year. Big Oaks is currently part of the Indiana Interagency Coordination Center 

(IICC). The IICC agreement assures mutual aid between the State of Indiana, the Forest Service 

and the U.S Fish and Wildlife Service. Details including dispatching and accounting practices 

are also contained within the document. 

Additional Service resources are located at Muscatatuck NWR. Consult the Zone FMO when 

considering additional support through neighboring agencies and refuges. If these organizations 

fail to meet fire suppression needs, then resource requests can be made through the Zone FMO or 

IICC working in consultation with the RFMC to the national level. 

VIII. WILDFIRE PROGRAM

This section covers the actual implementation of this action plan. It explains the method to 

achieve the plan objectives, relative to wildland fire. Tables showing NUS needs is found in 

Appendix C. 

A. Fire Prevention 

Person-caused wildfires result in major expenditures of fire suppression funds and will usually 

cause unacceptable resource damage. Prevention efforts will be directed toward reducing fire 

occurrence from these causes. 

Big Oaks NWR will not undertake its own specific fire prevention program but will utilize 

existing fire prevention programs for the state and direct refuge neighbors to those sources for 
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additional information. 

Big Oaks NWR will also conduct a Fire Prevention Analysis that identifies the hazards, risks and 

values of the refuge. Prevention efforts for Big Oaks NWR will be guided by the Fire Prevention 

Analysis. Those areas identified of having the greatest hazards and risks shall be considered for 

some method of fuels management to reduce the hazards. This may include management ignited 

fires and construction/maintenance of fuel breaks. 

B. Fire Season 

Wildfires can potentially start during all months of the year, however, the late November through 

late February period has the lowest incidence of wildfire starts. The mid-March through midNovember period is the historic fire season for this area of Indiana. During early spring, snow 

cover is rare, fine fuels (grasses, forbs and cattail) are cured, and cool, dry windy conditions are 

common. Fires at this time are normally faster spreading and human caused. Summer fires, 

resulting from prolonged drought conditions, may approach the rate of spread of spring fires but 

are normally shorter in duration. Normal summer and fall weather patterns are not conducive to 

wildfire spread since the prevalence of green vegetation reduces the likelihood of ignition and 

greatly reduces the rate of spread. 

For Big Oaks NWR there is a split fire season. First, the fire season runs from snow melt, to 

vegetative green-up. This corresponds to a fire season beginning as early as February 15 to 

about May 1. Fire danger then drops to Low/Moderate levels throughout the summer months, 

due to broad leaf shading, high humidity and transpiration rates associated with hardwood 

species. Precipitation remains fairly uniform throughout the year, with a monthly average of 

about 3 - 4 inches. In the fall, a late fire season is possible, once deciduous vegetation has cured 

and leaves are on the ground. This increased litter layer is highly available as it is very loose, 

fluffy and dried out when denied normal moisture. 

In recent drought years, fires have occurred in September and October and continued through the 

fall, until adequate moisture is received. Fires in the spring and fall usually pose little resource 

damage and are fairly easy to suppress. However, under accumulated drought conditions, fires 

can be very severe in late summer and early fall, when soil moisture is low. All size classes of 

down woody fuel are available as well as a deep litter layer. 

C. Presuppression 

This section describes the tasks that are completed in advance of fire occurrence to ensure an 

effective response and action in the event of a wildfire. 
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 1. Training

Fire training emphasis will be to maintain fully qualified individuals at Big Oaks NWR to meet 

the objectives of this plan. Additional employee development training will be a second priority, 

depending on budget limitations and refuge and regional needs. At Big Oaks NWR level, the 

PFS will oversee and recommend individual fire training needs, ensure course prerequisite 

requirements are met, and assist individuals in scheduling training. The PFS then submits 

training requests to the RFMC for approval and funding, based on regional priorities and needs. 

To reduce training costs, attempts will be made to take advantage of training programs offered 

locally, through other refuges, and agencies. 

Red Card qualification information, such as training records and fire assignments, are maintained 

through the Incident Qualification and Certification System (IQCS), which is a FWS computer 

database system. Information will be updated annually by the PFS, as submitted through the 

FMO after verification. The PFS will maintain a file on refuge personnel; Big Oaks NWR 

should document the training an individual receives in their personnel file with a copy of the 

course completion certificate placed within the individual’s file. 

 2. Annual fire readiness needs

The wildfire and prescribed fire season for Big Oaks NWR begins in February and ends for the 

most part in November. The PFS will keep the RM advised as to the need for readiness above the 

normal level described below. He also will advise on pre or post fire season readiness needs. 

The PFS shall have fire equipment, supplies, and personnel readied and available by March 1. 

This includes the following: 

a. Fire engines and specialized equipment are fully functional. The engine is 

outfitted to a type VI standard. Reference Fireline Handbook, p. A-27. 

b. The fire cache and NUS are adequately supplied, at levels specified within 

the Fire Management Handbook (3.1-8 to 3.1-11). Maintain a wellorganized and clean fire cache throughout the fire season. 

c. All fire employees meet minimum training and fitness guidelines as 

detailed in the Fire Management Handbook (621 FW 1.5-6 to 1.5-18). 
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d. All fire employees will have all initial attack gear and personal protection 

gear available on a daily basis. 

e. All chainsaws and ignition equipment are functional and available. 

f. Handtools are adequately maintained and safe to use. 

g. The PFS, with input from the RM will review all fuel break needs. This 

includes scheduling the maintenance of existing roads and firebreaks. 

h. The PFS will insure that the Annual Prescribed Burn Plan is completed 

and approved by January 15 of each year. This will allow for maximizing 

the number of burn days available based on prescription limits set forth in 

the Plan. 

3. Fire Detection

As potential fire danger increases, Big Oaks NWR will place added emphasis on periodic patrols 

as part of normal operating procedures. 

4. Regional and National Concerns

Regional preparedness levels tend to follow the national preparedness level unless the central 

U.S. is experiencing very dry conditions and high potential for wildfire. Normal refuge 

operations will occur through Preparedness Level III. At Preparedness Level IV, Big Oaks 

NWR will seek approval through the RFMC prior to igniting any prescribed burns. At 

Preparedness Level V, no prescribed burns are permitted. 

Subject to RM approval, fire trained individuals will be made available for regional and national 

needs, especially when the National Preparedness Level is at Level V. 

D. Emergency Presuppression 

During periods of extreme or unusual fire danger, emergency presuppression activities should be 

initiated to provide additional coverage and protection. Appropriate activities for emergency 

presuppression funds include extended tour-of-duty for refuge firefighting personnel, authorizing 
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overtime or premium pay beyond regularly scheduled hours, extending types and tours of 

detection, and pre-positioning resources. The RFMC will make the final determination and if 

appropriate, open an emergency account authorizing the expenditure of emergency 

presuppression funds. A generalized Step-Up Plan for Big Oaks NWR is included as Appendix 

D. 

E. Fire Detection 

Because of small staff size and limited resources, Big Oaks NWR depends heavily upon visitors, 

Air National Guard and the U.S. Army Site Management Team to assist in early detection and 

reporting of refuge fires. As potential fire danger increases, Big Oaks NWR will place added 

emphasis on periodic patrols and monitoring as part of normal operating procedures. 

 F. Pre-attack Plan 

Since there is currently a low wildfire occurrence associated with Big Oaks NWR, the RM will 

determine the need for a Pre-attack Plan on an annual basis. Should severe fire environmental 

conditions necessitate the need, a simple, informative plan will be prepared addressing the 

elements listed in the Fire Management Handbook (exhibit 1.4.2). Once developed, the Preattack Plan will be appended to Big Oaks NWR FMP. 

G. Fire Suppression 

The goal of fire suppression at Big Oaks NWR is to suppress all human-caused wildfires at 

minimum cost, consistent with the values at risk, while minimizing the adverse impacts resulting 

from suppression activities. Additional refuge suppression objectives include: 

1. Protect human life, including all fire management personnel involved in 

suppression operations. 

2. The protection of refuge structures, facilities, and improvements. 

3. The protection of property and the environment adjacent to Big Oaks NWR. 

4. The protection of all Threatened/Endangered species, natural, and cultural 

resources. 
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For most wildland fires the appropriate management response will be a suppression action. 

Numerous situations exist where suppression will be needed and desired. Examples of these 

situations include: 

1. The Fire Situation shows that, regardless of the fire location, it is human-caused. 

2. The Initial GO/NO-GO decision indicates that managing the fire for resource 

benefits is not within described limits or capabilities at this time. 

The appropriate management response is not a replacement term for prescribed natural fire, or 

the suppression strategies of control, contain, confine, limited or modified, but it is a concept that 

offers managers a full spectrum of responses. It is based on objectives, environmental and fuel 

conditions, constraints, safety and ability to accomplish objectives. It includes wildland fire 

suppression at all levels, including aggressive initial attack. Use of this concept dispels the 

interpretation that there is only one way to respond to each set of circumstances (Fire 

Management Handbook 3.2-3). 

Wildland Fire Situation Analysis (WFSA) (Appendix E) will be completed when fire spread and 

behavior exceed suppression efforts, when management capability is inadequate to accomplish 

wildland fire use objectives, or when prescribed fire plans are no longer adequate to guide full 

implementation (Fire Management Handbook 1.1-6 to 1.1-8). The WFSA will be updated daily 

or when strategic changes warrant. The original WFSA will be approved by the RM. Included 

in Appendix F is a sample Delegation of Authority to insure a smooth transition from an 

extended attack to a Type II or I incident or project fire. 

Generally, at Big Oaks NWR, most wildfires will use confine or contain as the suppression 

strategy. The WFSA will consist of alternatives based on the management response and 

appropriate suppression strategy. The three suppression strategies are listed in order of 

increasing intensity of tactical action: 

1. Confine - To restrict the wildfire within determined boundaries, established either 

prior to or during the fire. These identified boundaries will confine the fire with 

no direct action being taken to extinguish the fire. 

Tactics include, but are not limited to, indirect human-made lines, burning out or 

backfiring, holding at natural barriers, cold trailing, hose lays and aerial delivery 

of water or retardant, perimeter mop-up and patrol. This strategy may have the 

least impact from suppression operations but generally involves larger areas and 

longer incident duration than containment and control. 

2. Contain - To restrict a wildfire to a defined area using a combination of natural 

and constructed barriers that will stop the spread of the fire under the prevailing 
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and forecasted weather conditions until it is out. 

Tactics include, but are not limited to direct and indirect line construction, 

burning out or backfiring, holding at natural barriers, cold trailing, hose lays and 

aerial delivery of water or retardant, perimeter mop-up and patrol. This strategy 

utilizes natural barriers to the greatest extent, minimizing suppression impacts 

from line construction. Areas are generally smaller, incident duration reduced 

and perimeter secured more quickly as compared with the confinement strategy. 

Suppression costs will be higher and additional resources will be required to meet 

tactical needs. 

3. Control - To aggressively fight a wildfire through the skillful use of personnel, 

equipment, and aircraft to establish firelines around a fire, halt the fire’s spread, 

and extinguish all hot spots until the fire is completely out. This strategy is an 

effective technique to achieve prompt control of a wildfire. 

Tactics are directed at total suppression of the fire as quickly as possible, usually 

through aggressive direct attack designed to minimize the fire size or area 

involved. Negative resource impacts are potentially the greatest due to the direct 

tactical control measures employed. 

1. Considerations and Constraints

The assigned Incident Commander will determine the appropriate management response, 

suppression strategy and resulting tactics based on, but not limited to values at risk, current and 

expected weather conditions, current and expected fire behavior, available resources, threats to 

refuge and non-refuge resources, season of year, and firefighter safety. 

All fires that are not management ignited prescribed fires are wildfires. Should management 

ignited prescribed fires fall out of prescription, they may then be considered a wildfire, and 

appropriate suppression action will be undertaken. 

Indirect tactical methods may be used in all suppression strategies. The suppression methods 

employed will be those that cause the least resource damage (minimal tool concept) based on the 

values at risk. Chainsaws, portable pumps, and other small, portable equipment may be used in 

all FMU’s outside of designated closed areas. Vehicles may be used inside Big Oaks NWR 

where roads exist and are identified for public use. The use of heavy equipment (such as 

bulldozers) is not permitted in any FMU without written consent of the RM. 

The Incident Command System will be implemented in all refuge fire management operations. 

Only personnel who meet the qualifications (training, experience, and physical fitness 

requirements) of assigned positions will be permitted to participate in fire management activities. 
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2. Initial Attack 

Initial action will be rapid and efficient for all wildfires within or threatening Big Oaks NWR. 

First response will usually consist of two or three firefighters and Big Oaks NWR’s initial attack 

Type 6 engine. If suppression strategies other than those identified for the FMU’s are utilized, 

the rationale for using the other strategy will be documented on the WFSA (Appendix E) and DI1202 Fire Report (Appendix G) by the Incident Commander (IC) Type 5 (T5). 

The ICT4 is responsible for the fire until relieved or until the fire is declared out. As a minimum 

guideline, a wildfire can usually be declared out 24 hours after the last smoke has been 

extinguished. If initial actions are not successful during the first operational or burning period, 

or at any point the IC determines that the incident requires a more complex organization, the fire 

will be reassessed by the assigned ICT4, RM, and the RFMC. 

3. Extended Attack

Any fire which is not contained or controlled, usually by the end of the first operational period, is 

considered an extended attack fire. This designation will continue until the fire is declared out. 

A WFSA will be prepared and updated daily until such time as the incident is contained or 

controlled. If the fire complexity reaches a point requiring multiple resources, an IC Type III 

(ICT3) will be assigned after consultation with the RFMC. 

As the fire complexity increases, the RM will approve requests to mobilize a local or national 

incident management team (Type II or I). The RFMC will coordinate the transition to an 

incident management team with the RM. The RM will represent Big Oaks NWR at the initial 

meeting, issue the delegation of authority, approve the WFSA, and approve the Agency Advisor 

to the team. The RM will also perform the close-out and evaluation of the team. 

An ICS-209, Incident Status Report (Appendix H), will be completed daily for extended attack 

incidents greater than 100 acres in size. The IC is responsible for report completion. The ICS209 will be sent to the RFMC for transmittal to the Eastern Area Coordination Center, 

Minneapolis, MN. 

4. Dispatch/Mobilization

The RM will designate the Initial Attack Incident Commander (ICIA), brief the ICIA on what 
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fire information (size-up) is available, ensure an efficient get-away time, and inform the RFMC 

of the incident. If additional resources (reinforcements) are necessary, then the first choice will 

be the Kent Volunteer Fire Department. Additional FWS support can be considered, keeping in 

mind the travel time required to get to the fire location. Resource needs beyond this level will be 

requested through the RFMC. 

The following information will be included in the size-up: 

Name (person reporting fire) 

Location (general and legal description) 

Cause 

Estimated size 

Discovery: date, time, by who or type 

Initial attack: date, time, and type 

Topography 

Position of fire on slope 

Fire behavior (smothering, creeping, running, torching) 

Rate of spread (slow, moderate, fast) 

Weather conditions: wind speed and direction 

Smoke: color, amount (light, moderate, heavy) 

Other considerations: access points, water source, fuel 

Resource requests 

Upon receiving a report of fire, get as much of the above information as possible. Dispatch 

information and procedures can be found in Appendix I. 

5. Minimum Impact Suppression Guidelines

Suppression efforts can sometimes cause more resource damage than the actual fire. Efforts to 

minimize resource damage must be a consideration with all suppression actions. The assigned 

IC will evaluate the suppression resource needs, seek alternatives to mechanized equipment that 

limit soil movement, maintain natural water courses, and minimize resource degradation, while 

minimizing the threat to human life and property. The IC will seek RM approval prior to the use 

of any heavy equipment or retardant within any FMU. 

It is the responsibility of the IC to establish the minimum impact suppression tactics to protect 

natural and cultural resources. All personnel involved with fire management are expected to 

have an understanding of minimum impact suppression tactics such as indirect or parallel attack 

(instead of direct attack), utilization of existing barriers for control lines, and cold trailing.
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A Resource Advisor will be used on any fire that has the potential for significant resource 

damage caused by suppression operations or whenever the IC requests the position. The 

Resource Advisor should be an employee with resource management knowledge to advise the 

Incident Management Team on issues related to mitigating the effects of suppression operations 

on cultural and natural resources. The Resource Advisor will also assist in developing and 

implementing the Rehabilitation Plan for the incident. 

 6. Rehabilitation

Rehabilitation is any action taken to restore an area to the pre-burn or natural condition. Incident 

Commanders are responsible for short-term (less than six months) actions to mitigate the effects 

of fire suppression activities. Immediate rehabilitation actions will be outlined in the Incident 

Action Plan. Post-incident rehabilitation actions will be documented in a Rehabilitation Plan

approved by the RFMC. 

In the event of a large fire, a Resource Advisor will be designated to develop the Rehabilitation 

Plan. The Plan will be approved by the RM and implemented by the Incident Commander prior 

to the release of personnel from the fire. The Rehabilitation Plan will establish counter measures 

and outline methods to minimize or restore damage. 

Once a fire is out, efforts will be made to return the fire site to as natural a state as possible. 

Generally, most initial attack fires will not have rehabilitation needs. However, each incident 

will be evaluated individually. 

Rehabilitation (when necessary) will occur according to the following standards and techniques: 

a. Remove all trash and debris from firelines, staging areas, Incident Command 

Posts, and other locations. Attempt to return such areas back to their original 

condition. 

b. Flush cut all stumps that were created or disturbed on the incident. 

c. Mechanically constructed firelines should be built with water bars (when 

necessary) to prevent erosion. Consideration should be given to moving woody 

debris back into firelines and reseeding with native grasses to simulate natural 

processes and accelerate healing of the disturbed site. 

d. Disturbed natural water channels will be restored to pre-burn conditions by 
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removing and rehabilitating all constructed dams, water drafting sites, and 

equipment/personnel access points. 

a. During mop-up operations use cold trailing techniques and/or water or foam. 

Limit the use of control techniques that require soil disturbance and take all 

necessary measures to prevent concentrated foam from directly entering water 

sources. 

7. Records and Reports

Each incident will be documented on an Individual Fire Report (DI-1202) (Appendix G). This 

includes all fires within refuge boundaries and fires threatening NWR System lands (see Fire 

Management Handbook 1.6-6). In addition, the Incident Commander is responsible for 

conducting an initial investigation and documenting whether the fire was human-caused or from 

natural agents. When investigation indicates the fire was caused by arson, evidence (including 

the point of origin) will be protected and the proper local and/or state law enforcement agencies 

will be notified. 

Incident Commanders are responsible for completing the DI-1202 and forwarding a copy to the 

FMO. The FMO will assign refuge fire numbers, the suppression account number, and input the 

report information into the FMIS. 

All wildfires escaping initial response action will require the completion of a WFSA to 

determine the next appropriate suppression response. In addition, all large fires (greater than 100 

acres) will have form ICS 209 (Incident Status Summary Report) (Appendix H) submitted daily 

until the incident is controlled. 

A documentation package will be assembled for each fire to include: 

1. Unit logs. 

2. Map of the fire area (7.5 min. quad. showing point of origin). 

3. Dispatch log and telephone log. 

4. Aircraft documentation. 

5. Resource orders. 

6. Incident Actions Plans. 

7. Photographs, slides, videos. 

8. Press clippings. 

9. Accident reports. 

10. Performance ratings. 
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11. Other documents pertinent to each individual fire. 

Fire related reports and documents will be maintained at refuge headquarters. Other reports that 

should be kept on file include fire training schedules, qualification reports, weather data, 

situation reports, and prescribed burn plans. 

H. Mechanical Fuel Treatments

Mechanical fuel reduction is the use of mechanical equipment (i.e. weed whackers, chainsaws, 

dozers, rubber tired skidders, chippers, mowers, etc.) to cut and remove, or prepare for burning, 

woody fuels. Mechanical treatments are intended to help in achieving resource management 

goals and objectives, most often a combination of ecosystem restoration and reduction of high 

hazard fuel loadings. Mechanical fuel treatments must be described in a fuels project plan. The 

plan will contain a prescription defining goals, objectives, and treatment methods employed to 

achieve the objectives. 

Mechanical fuel treatment is often used in concert with prescribed fire treatment. High hazard 

fuel conditions can be reduced while meeting structural objectives in areas immediately adjacent 

to infrastructure values (Wildland Urban Interface) or on boundary areas through a mix of 

mechanical treatment and prescribed fire. Mechanical treatment can be used as the primary 

method of reaching structural goals while prescribed fire actually removes and eliminates the 

hazardous fuels. 

Long-term Program Objectives: 

The primary program objective is the reduction of hazardous fuels to protect adjacent 

landowners and values at risk. As regeneration of agricultural areas continues, annual reviews 

will be conducted to determine necessity of treatment. Due to UXO issues at Big Oaks, ground 

disturbance is prohibited unless authorized by the Army. In most cases mechanical work will be 

limited to the perimeter of the refuge where fire could escape onto public lands. Interior work 

will be limited to the established roadways. 

Annual Preparation: 

There is little preparation needed for mechanical treatments. Review of proposed projects to 

ensure that damage would be minimal will be part of the planning process. What can be critical 

is the timing of the mechanical treatment to ensure that soil compaction and disturbance does not 

occur during wet season or times of high precipitation. Conducting mechanical treatments during 

frozen ground conditions or late in the growing season tend to yield the best results. 

Required Staffing: 

The required number of personnel will be used to meet the work plan and job hazard analysis 

provisions. 

Sensitive Resource Considerations: 

Depending on the type of mechanical operation, mowing, etc., ground disturbance may occur. 
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Mowing does not disturb the ground so no effects are expected on potential, undiscovered, 

cultural sites. 

Federally listed and State listed threatened or endangered species are likely to be found on the 

Refuge. Should reconnaissance prior to treatment indicate T&E presence, an intra-Service 

Section 7 consultation will be initiated. Depending on access conditions, mechanical treatments 

can usually be timed to mitigate adverse effects on listed species. Lists of Federal and state T&E 

species potentially present are found in Tables 6 and 7 in Appendix G. 

Air quality is not expected to be affected by mechanical fuels treatments. Some fugitive dust 

may be generated over the immediate area. It is not expected to be of a quantity or duration to 

contribute to regional haze conditions. 

Restrictions: 

Equipment 

There are no restrictions on types of equipment that may be used. Common agricultural 

equipment and implements would generally be used in fuel management operations. As 

stated before, UXO concerns would have to be evaluated and Army guidance would be 

sought before any mechanical treatment would be approved. 

Seasonal 

Depending on the season and precipitation levels, operations would be timed to reduce 

potential for ground disturbance. The only other seasonal restriction involves delay of 

operations until ground nesting is essentially complete. 

Documentation and Reporting: 

Effects Monitoring 

Monitoring of mechanical operations is intended to provide information for quantifying 

and predicting ecological effects on refuge resources while building a historical record. 

In addition, ecological changes such as species composition and structural changes in 

vegetation should be monitored after each operation. Operational monitoring provides a 

basis for evaluation and comparison of management actions. Possible monitoring actions 

addressed in the Prescribed Fire Plan are usable for mechanical operations as well. 

Cost Accounting 

All costs of planning, implementation and first order, post-operation, monitoring will be 

charged to the appropriate cost code. This data may be tracked in several locations 

including FIREBASE, the National Fire Plan Operations and Reporting System 

(NFPORS) as well as the Federal Financial System. Detailed cost tracking provides for 

constantly improving cost estimates for budget purposes. 

Public Information/Interaction: 

As needed, opportunities for public input should be made available to reduce public concern 

about increases in fuels, potential use of fire for management and potential for mechanical 

treatment of fuels. 
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IX MANAGEMENT IGNITED PRESCRIBED FIRE PROGRAM

At Big Oaks NWR, fire is proposed to be used as a tool to achieve specific resource management 

objectives. These objectives include enhancing wildlife and plant species populations, 

preserving endangered species habitats, promoting biological diversity, reducing hazardous fuels, 

and accomplishing basic maintenance needs such as disposal of vegetative waste and debris. 

This Management Ignited Prescribed Fire Program is designed to retain fire as a vital ecosystem 

process to control undesirable vegetation, to release soil nutrients, and to improve vigor of 

desirable vegetation. 

A. Long-term Prescribed Burn Program 

Big Oaks NWR was established primarily to benefit non-game grassland and forest birds. Much 

of the habitat management work implemented at Big Oaks NWR benefits a wide array of 

wildlife species. Current management activities support several landscape elements to promote 

maximum vegetation and wildlife species diversity. Management practices also protect sensitive 

cyclic processes necessary to maintain the various ecosystems on Big Oaks NWR. 

Big Oaks NWR’s various habitat management plans are implemented to meet the habitat 

requirements of several different wildlife species. Prescribed fire has been used as a 

management tool on an almost annual basis for the last 20 years. The exclusion of fire from Big 

Oaks NWR would result in extensive deterioration of grasslands and the invasion of woody 

species and undesirable perennials. 

Prescribed fire will be used to suppress woody shrub invasion within open grass fields. These 

fields, if not kept open by manipulation, will progress to more advanced stages of succession, 

eliminating habitat diversity. In addition, dead and down ground fuels accumulate quickly over 

time due to rapid vegetation growth. The use of management ignited prescribed fire on a 

continuing annual basis will help to maintain fuel hazards at an acceptable level where resource 

values at risk are high. 

B. Description of Management Ignited Prescribed Burn Program

In general, the prescribed burn program at Big Oaks NWR is aimed at habitat maintenance, 

focusing on preventing shrub and tree encroachment in grass fields. Other burning is fuel 

reduction related, in high risk areas and where woody debris has been piled. Objectives include: 

1. Maintain grasslands through prescribed burning to control hardwood shrub and 
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tree encroachment. 

2. Provide nesting habitat for grassland and early successional dependent species 

including Henslow’s sparrows. 

3. Reduce the dominance of invasive exotic plant species. 

4. Reduce hazard fuel concentrations to prevent or reduce the severity of wildfires. 

Annual activities required to prepare for and implement the prescribed burn program at Big Oaks 

NWR include the following: 

1. Planning starts several months to one year in advance of the burn program 

implementation. Generally, old fields will be burned on a repeated basis, every 

three to four years. 

2. Once all areas for burning are identified, they are priority ranked and the time of 

year for burning is determined. In general, light fuel units, such as grass fields, 

are scheduled for spring burning prior to green-up. 

3. Collect and compile base line information, prepare, and submit the Prescribed 

Burn Plan by February 1 for necessary approvals. 

4. Prescribed burning qualifications are reviewed in the fall, matching available 

training courses to agency and personnel needs. Training requests are submitted 

to the FMO for further consideration and scheduling. At the refuge level, most of 

the burning is of low complexity, requiring minimal fire qualifications of 

Firefighter 2 rating. At least one individual, who meets the qualifications for 

Prescribed Fire Burn Boss (RXB2), is required to function as the Burn Boss. A 

minimum crew of 8 to 10 individuals have been sufficient to carry out the 

prescribed burn program at Big Oaks NWR in the past. 

5. Implement the Prescribed Burn Program as approved by the RFMC. 

6. Conduct monitoring and evaluation and complete reporting requirements 

following completion of all prescribed burning activities. 

 C. Fire Management Unit (FMU) Correlation
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Management ignited prescribed fire may occur within any FMU. Management plans currently 

being developed call for the elimination of Prescribed Fire, for grassland management purposes, 

within FMU 1 but Prescribed Fires may occur to meet other management objectives within all 4 

FMU’s (Figure 8). Detailed location maps will be included in the Prescribed Burn Plan. 

D. Correlation with Fire Strategies and Objectives 

The Management Ignited Prescribed Fire Program is consistent with refuge resource 

management objectives. In addition, wildfire strategies are enhanced through the treatment of 

natural and management generated fuel loads which might pose a threat to resource values. 

A normal fire season at Big Oaks NWR also offers the optimum burning conditions for 

implementation of a prescribed burn program. Most burning will be accomplished in the spring. 

 After green-up, debris burning could carry into the summer months, as conditions permit. 

Opportunities for fall burning are normally limited due to poor burning conditions. However, 

since “burning windows” are fairly limited at any time of the year, we will develop spring and 

fall prescriptions for certain units to allow for maximum opportunity to best achieve program 

objectives. 

E. Resources Necessary to Plan/Execute/Evaluate Prescribed Burn Program 

Most prescribed burning at Big Oaks NWR is of moderate complexity. Fire qualified individuals 

previously identified are supplemented with other fire-qualified individuals in order to plan, 

execute, and evaluate the burn program. Usually a burn crew, composed of a qualified Burn 

Boss and seven to nine additional qualified individuals will be sufficient to minimally meet most 

burn program objectives. 

The PFS at Big Oaks NWR is responsible for planning, executing, and evaluation of the refuge 

prescribed burn program. The RFMC or designee will supply the technical expertise to support 

the burn program and ensure that the proper burn plan implementation procedures are followed. 

More specific evaluation criteria are addressed within the Prescribed Burn Plan.
DEPARTMENT OF THE INTERIOR FIRE MANAGEMENT PLAN 

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46 FEBRUARY 2006 
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U.S. FISH & WILDLIFE SERVICE BIG OAKS NWR

47 FEBRUARY 2006 

F. Procedures Required for Prescribed Fire Implementation 

As of the writing of the FMP, Big Oaks NWR is exempt from obtaining an annual Open Burning 

Permit from the Indiana Department of Environmental Management (IDEM). This permit 

typically specifies the type of burn being conducted, responsible individual, and type of holding 

resources on site. Careful monitoring of changing state regulations is necessary to ensure any 

open burning is done in compliance with existing or future regulations. 

All prescribed burning restrictions or notifications imposed at the state, Regional, or National 

level, as determined by Preparedness Level, will be adhered to. 

Site preparation needs are specified within the Prescribed Burn Plan. These will be completed 

prior to ignition and approved by the RM. The Burn Boss or the RM may impose additional site 

preparation needs or request additional holding requirements based on potential risks involved. 

The PFS at Big Oaks NWR is responsible for all suppression equipment and personnel. These 

resources are also used for implementing the prescribed burn program. All equipment and 

personnel are generally fire ready by February 1. No prescribed burning is to occur when a 

wildfire is in progress within the boundary of Big Oaks NWR. 

G. Prescribed Fire Program Complexity

The Prescribed Fire Complexity Analysis (Fire Management Handbook 2.2-3 to 2.2-9) will be 

used to determine prescribed fire complexity for the various units burned annually and included 

in the Prescribed Burn Plan. 

The weighted rating is categorized as low, normal, or complex based on the potential risk, 

potential consequence, and technical difficulty of each element. This in turn helps to establish 

the degree of difficulty that is involved in completing the burn and determines if current refuge 

resources can accomplish the planned burn and the degree of training required by the burn boss. 

Before the fire is ignited, a GO/NO GO Checklist must be completed. A sample can be found in 

Appendix J. 
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48 FEBRUARY 2006 

Table 4. Complexity analysis. 

Complexity Worksheet 

Station: __Big Oaks National Wildlife Refuge___ Burn Unit Name:___ 

 Element Sub Element Rating Value 

(L-M-H) 

Rationale

Risk Preliminary

Final 

Preliminary Potential 

Consequences Final 

Preliminary 

Potential for 

Escape 

Technical Difficulty

Final 

Preliminary Risk

Final 

Preliminary Potential 

Consequences Final

Preliminary 

Number & 

Dependency 

of Activities

Technical Difficulty

Final 

Preliminary Risk

Final 

Preliminary Potential 

Consequences Final 

Preliminary 

Off-Site 

Values

Technical Difficulty

Final 

Preliminary Risk

Final 

Preliminary Potential 

Consequences Final 

Preliminary 

On-Site 

Values

Technical Difficulty

Final 

Preliminary Risk

Final 

Preliminary Potential 

Consequences Final 

Preliminary 

Fire Behavior

Technical Difficulty

Final 

Preliminary Management 

Organization

Risk

Final 
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Preliminary Potential 

Consequences Final 

Preliminary Technical Difficulty

Final 

Preliminary Risk

Final 

Preliminary Potential 

Consequences Final 

Preliminary 

Public & 

Political 

Interest

Technical Difficulty

Final 

Preliminary Risk

Final 

Preliminary Potential 

Consequences Final 

Preliminary 

Fire 

Treatment 

Objectives

Technical Difficulty

Final 

Preliminary Risk

Final 

Preliminary Potential 

Consequences Final

Preliminary 

Constraints

Technical Difficulty

Final 

Preliminary Risk

Final 

Preliminary Potential 

Consequences Final 

Preliminary 

Safety

Technical Difficulty

Final 

Preliminary Risk

Final 

Preliminary Potential 

Consequences Final 

Preliminary 

Ignition 

Procedures 

Methods

Technical Difficulty

Final 

Preliminary Risk

Final 

Preliminary Potential 

Consequences Final 

Preliminary 

Interagency 

Coordination

Technical Difficulty

Final 

 Preliminary 
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Risk Final 

Preliminary Potential 

Consequences Final 

Preliminary 

Project 

Logistics

Technical Difficulty

Final 

Preliminary Risk

Final 

Preliminary Potential 

Consequences Final 

Preliminary 

Smoke 

Management

Technical Difficulty

Final 

RISK OVERALL RATING 

POTENTIAL CONSEQUENCES OVERALL RATING 

TECHNICAL DIFFICULTY OVERALL RATING 

SUMMARY COMPLEXITY RATING 

RATIONALE: 

I. Regional/National Preparedness Levels 

Regional and National Preparedness Levels are monitored by the RFMC. Big Oaks NWR will 

contact the RFMC concerning reporting requirements or limits to prescribed burning activities. 

Guidelines are set forth in the National Interagency Mobilization Guide. Big Oaks NWR will 

adhere to the direction given as preparedness levels change. Generally, regional preparedness 

levels follow the national level. 

J. Potential Impacts of Plan Implementation 

Big Oaks NWR’s management ignited prescribed fire program is sensitive to potential adverse 

impacts. All known or suspected impacts are addressed within the Environmental Assessment 

completed for this FMP and, once approved, will be included as Appendix K to this document. 

Visitors will be warned ahead of time of a planned burn. Most of the burn blocks are well within 

Big Oaks NWR’s boundary, easily accessible, and present few control problems. Threats to 

human life and property are minimal. There are no known social and economic impacts. 

Smoke management is critical for prescribed fire planning at Big Oaks NWR. Highway 421 is 

adjacent to Big Oaks NWR on the east and is a concern for smoke management. Prescriptions 
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will be designed to minimize impacts along this major transportation corridor and on nearby 

homes. Wind direction and ignition patterns will be carefully prescribed to carry smoke away 

from potentially impacted roadways. As a further precaution, warning signs or guards will be 

used to advise motorists of a burn in progress if smoke was to reduce visibility along one of the 

roads adjacent to Big Oaks NWR. Listed below are written principles that will guide smoke 

management planning at Big Oaks. 

Have clear objectives. Be sure to have clear resource objectives and consider the impact 

on the total environment, both on and off-site. 

Obtain and use weather forecasts. Weather information is needed to determine what will 

happen to smoke, as well as to determine the behavior of fire. 

Don’t burn during pollution alerts or temperature inversions. Smoke tends to stay near 

the ground and not disperse readily. 

Comply with air pollution control regulations. Check with the appropriate agency prior 

to burning. 

Burn when conditions are good for rapid smoke dispersion. The atmosphere should be 

slightly unstable so smoke will rise and dissipate rapidly. 

Determine the direction and volume of smoke and use caution when near or upwind of 

smoke sensitive areas. Burning should be done when wind will carry smoke away 

from heavily traveled roads, airports, and populated areas. 

Use test fires to confirm smoke behavior. Set test fires in the area proposed for burning, 

away from roads and other Aedge@ effects. 

Notify local fire control office. Notification will inform potentially impacted residents 

that it is not a wildfire. 

Use backing fires where possible. Assuming resource management objectives can be 

met, backing fires produce more complete consumption of fuels and produce less 

smoke. If other firing methods are used, ensure that fire is hot enough and the 

weather conditions are suitable to vent smoke into the upper atmosphere. 

Burn in small blocks. The larger the area being burned, the more visibility is reduced 

downwind and the higher the concentration of particulates put into the air. 

However, it may be better to burn all of an area when weather conditions are ideal 
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for smoke dispersion. 

Mop-up along roads. Burn out and mop-up operations should be started as soon as 

possible along roads to reduce smoke impact on visibility. 

Have an emergency plan. Be prepared to control traffic on nearby roads if the wind 

direction changes. Be prepared to stop a prescribed fire if it is not burning 

according to plan or if weather conditions change. 

Follow the prescription and burn smart. Burn when duff and soil moisture levels are high 

to prevent smoldering ground fires. Burn under conditions of low relative 

humidity and fuel moisture to avoid smoke particles from combining with 

moisture to produce smog and poor visibility. Avoid days with low transport 

windspeed (less than 9 MPH) or low morning mixing heights (less than 1640 

feet). 

Additional information regarding smoke management can be found in the following 

publications: 

Southern Forestry Smoke Management Guidebook. Mobley et al., USDA Forest Service. GTR 

SE-10, December 1976. 

Prescribed Fire Smoke Management. National Wildfire Coordinating Group. Publication No. 

420-1, February, 1985. 

With the exception of smoke, there are no other known negative environmental impacts 

associated with prescribed fire implementation at Big Oaks NWR. Local communities are far 

enough away that smoke should not seriously impact them. In addition, much of the burning 

contemplated at Big Oaks NWR is composed of fine fuels which burn out quickly and normally 

do not produce lingering smoke problems. Prescribed fires in other fuel types will be carefully 

prescribed and implemented to avoid smoke problems. 

K. Documentation Requirements 

To implement management ignited prescribed fire on Big Oaks NWR, a Prescribed Fire Plan is 

prepared, addressing the required elements as outlined within the Fire Management Handbook. 

The Plan is usually prepared and submitted by the ROS. The Plan is then reviewed by the 

RFMC and Burn Boss and given final approval by the RM. 
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Prior to burn implementation, a checklist of burn-day actions, as specified within the burn plan, 

and a Go No-Go Checklist are completed and become part of the final burn report. Additional 

documentation includes burn day notifications and contacts, documentation of current, expected, 

and extended forecasted weather conditions for a three to five day period beyond the day of the 

burn. The Burning Boss is responsible for gathering and documenting the above information 

prior to burn implementation. 

Normally the position of a Prescribed Fire Behavior Analyst is not activated. The Burn Boss 

assumes this role and documents all fire behavior and weather readings specified within the Burn 

Plan. He may choose to delegate this responsibility. A critique is made for each burn where the 

Burn Boss documents Burn Plan implementation. The Burn Boss also will evaluate burn 

objective accomplishment in consultation with the ROS. 

Post-burn monitoring and follow-up evaluation will be the responsibility of the ROS. It is 

important that this documentation be completed, attached to the burn report, and sent to the 

Regional Biologist and RFMC as feedback to wildlife objective accomplishment. 

L. Reporting Requirements 

Each individual burn will have a DI-1202 (Appendix G) and narrative prepared and entered into 

the Fire Management Information System FMIS. A hard copy, along with the documentation 

listed above, will be kept on file at the Big Oaks NWR office. A copy will also be sent to the 

RFMC for input into the Fire Management Information System. 

M. Critique Format 

Critiques will follow the format specified within the Fire Management Handbook (1.4-31). This 

will be the minimum standard. Additional critique documentation, such as prescribed burn 

summaries and cost documentation, will be prepared as necessary based on refuge or regional 

needs. 

X. WILDLAND FIRE USE 

Wildland fire use (also referred to as fire use) is the management of unplanned wildland fires, 

such as lightning-ignited fires, to accomplish specific resource management objectives. 

Lightning-caused wildland fires will receive appropriate management responses that give 

consideration to values, hazards, and risks. There is no planned wildland fire use on the Refuge 

at this time due to UXO constraints and the potential for smoke impacting roadways. A 
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Wildland Fire Use Management Plan must first be prepared in the event that wildland fire use 

would be used on the refuge. 

XI. WILDLAND FIRE MANAGED FOR RESOURCE BENEFITS

The fire management program at Big Oaks NWR will focus on suppression of human-caused 

wildland fires and management of ignited prescribed fires. The Service could manage some 

naturally occurring fires, such as lightening started fires, under pre-written plans (i.e., a natural 

prescribed fire plan) to accomplish specific resource management objectives. The Service does 

not have an active prescribed natural fire program and it is not anticipated that such a program 

will be implemented at Big Oaks NWR. 

The Service will utilize the full spectrum of fire management actions - from control suppression 

efforts to confine and contain strategies to realize and accomplish specific resource objectives 

during naturally ignited wildland fires. This policy promotes fire management actions along a 

“sliding scale" with ranges of minimal on-the-ground actions to prompt, aggressive actions to 

fully extinguish the fire. Use of this spectrum of responses allows land managers more 

flexibility to design responses closely allied with objectives and fuel, weather, and topographic 

conditions. This will permit the refuge to achieve effectiveness and efficiency in operations. 

(Fire Management Handbook 1.1-9) 

XII. AIR QUALITY/SMOKE MANAGEMENT GUIDELINES

Visibility and clean air are primary natural resource values at Big Oaks NWR and the protection 

of these resources will be given full consideration in fire management planning and operations. 

Big Oaks NWR will comply with all applicable Federal, Indiana State, and local air pollution 

control requirements, as specified within Section 118 of the Clean Air Act, as amended (42 USO 

7401). In addition, further guidance can be found in the Fire Management Handbook, 2.3, pp. 1-

9. 

Our objective at Big Oaks NWR is to take aggressive action to manage smoke from wildland and 

prescribed fires in order to minimize negative impacts to visibility/public safety and maintain air 

quality. For the type of burns occurring at Big Oaks, the following guidelines will be followed 

when planning a prescribed fire and addressing wildfire planning. 

All burning is permitted provided that the existing wind speed, wind direction, and 

atmospheric conditions do not create nuisance smoke conditions. 

Smoke sensitive areas will be identified and addressed within the Prescribed Fire Plan. 

The direction of wind vector selected will be such that smoke and other 
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particulate emissions are transported away from sensitive areas. 

Burning will be conducted only when visibility exceeds four miles and when the fire 

weather forecast indicates the presence of an unstable airmass; mixing heights are 

greater than 1640 feet and a minimum of 9 MPH windspeed is required. 

No burning will occur if any government agency has issued an air pollution health 

advisory, alert, warning, or emergency for the area surrounding Big Oaks NWR. 

Backing and flanking fires will be used when possible to minimize particulate emissions. 

Media sources will be kept informed of any adverse fire and smoke dispersal conditions 

throughout any fire event. 

XIII. FIRE RESEARCH AND MONITORING

All burning done at Big Oaks NWR will be well documented and is expected to be representative 

of other prescribed burns documented within the Fire Effects Information System (FEIS). 

Monitoring to determine habitat response will employ photo points and aerial photography to aid 

in determining burn objective and resource objective accomplishment. 

Special equipment will be used, when available and practicable, for measuring burn parameters. 

Data loggers and heat sensitive temperature probes can be used to measure flame intensity and 

duration. Most burns will be of low to moderate intensity and easily measured through rate of 

spread and flame length observations. Should more comprehensive fire behavior and effects 

information be necessary, it will be documented within the Prescribed Burn Plan. 

Currently, monitoring is being conducted annually on Henslow’s sparrow populations. The 

resulting Henslow’s sparrow population index may be used to indirectly indicate changes in 

habitat resulting from Big Oaks NWR’s prescribed fire program. The current burn program does 

not negatively impact the endangered Indiana Bat because no winter burns are conducted that 

would impact hibernating bats. Snags found on the edges of burn units may provide resting and 

hiding cover for the Indiana Bats, but no bats should be present at the time of the burns because 

they are conducted before March 15th or after September 15th and Indiana Bats are hibernating 

during this time. It is believed that the extensive amount of prescribed burning currently being 

conducted on Big Oaks NWR will require research, on specific plant and animal responses, and 

these should be initiated in the near future. Fire research or monitoring projects of Regional or 

National significance are submitted to the Regional Fire Ecologist and RFMC for consideration. 

The Regional Fire Ecologist will provide annual funding information for potential fire projects 

submitted for consideration under the Joint Fire Science Program (JFSP). Additional research 

opportunities may exist with the State University system. 
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Aerial photos will be used to determine the success of burn and resource objectives. Photos will 

be taken before and following implementation of our prescribed fire season (provided sufficient 

funding is available for monitoring) to assess the spatial extent of the burn. These aerial photos 

will be geo-referenced in ArcGIS and then habitat types can be classified. Due to the presence of 

UXO within many of our burn units, the only way to determine burn success away from access 

points is through aerial photos. Current photos will be compared to photos taken during previous 

years to gauge success of prescribed fire on the refuge over time by detecting differences in 

habitat types. 

XIV. PUBLIC SAFETY

Our greatest concern is the safety of all suppression personnel and the public when a wildland 

fire or prescribed burn is in progress. Only properly trained and qualified personnel will be 

assigned to fire activities. After the initial attack phase is complete, unqualified individuals at 

the incident will be relieved from suppression duty, or reassigned to a non-fireline function when 

adequate initial attack forces arrive. 

XV. PUBLIC INFORMATION AND EDUCATION

The public will be notified of any emergency response on Big Oaks NWR, the incident’s status, 

and of any special restrictions that may affect the general public. It is important to convey the 

fact that the incident is being handled by trained professionals. It is just as important to be 

supportive of the public’s concerns, accurately report what is known about the incident, and 

explain the actions that are being undertaken to bring the situation under control. 

Within the Incident Command System, an Information Officer position is identified. The 

Information Officer is responsible for the preparation and release of all information concerning 

the incident to the news media, incident personnel, and other agencies. Normally a structured 

overhead team will include this position to handle all public inquiries generated by the incident. 

If an overhead team is not required, but an Information Officer is needed, consider using refuge 

office support personnel to handle media and public inquiries. 

The same degree of communication is required for any management ignited prescribed fires. It 

is essential to keep the local populace informed of prescribed fires through the issuance of news 

releases. Usually this will include the preparation of a news release prior to any prescribed 

burns. 

Public education is a critical component of fire management. It is an important tool to garner 

support and understanding for Big Oaks NWR’s fire management program. An education 

program that teaches the value of fire as a management tool to achieve resource objectives will 
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be incorporated into Big Oaks NWR’s overall educational program. 

“Fire can play an integral role in this outreach through the use of education and demonstration 

projects. The Region 3 fire program has an outreach coordinator stationed at Trempealeau 

NWR. Her name and contact number are: Lauri Munroe-Hultman, ph: (608) 539-2311, ext. 17, 

who may be contacted for additional fire outreach materials. Additionally, the FWS National 

Fire Office in Boise, ID has a National Outreach Coordinator on staff that can assist in these 

efforts and provide further educational media. Region 3 also maintains a “Fire Management in 

the Midwest” website at: http://www.fws.gov/midwest/Fire/ which is an excellent source of 

pertinent local fire information. 

XVI. ARCHEOLOGICAL/CULTURAL/HISTORIC RESOURCES

Preparation for prescribed fires such as constructing fire lines are subject to Section 106 of the 

National Historic Preservation Act. The procedures in the Notice dated December 8, 1999, 

“Historic Preservation Responsibilities,” apply to the planning and preparation for conducting 

prescribed fires. 

Efforts to control wildland fires (including prescribed fires that get out of control) are also 

subject to Section 106 of the National Historic Preservation Act. We will meet our obligations 

under this act in the following ways: 

When the land covered by a wildfire has been inventoried to identify cultural resources, and the 

cultural resources have been evaluated for significance according to the criteria for the National 

Register of Historic Places, the Fire Management Officer will direct ground disturbing fire 

suppression efforts around (will avoid impacting) historic properties. Nevertheless, evidence of 

a previously undetected cultural resource may be encountered. The project leader shall 

immediately notify the Regional Historic Preservation Officer (RHPO). The RHPO will take 

immediate steps to have the cultural resource evaluated and protected, as appropriate, to the 

extent required by law and policy. This may require arranging for a qualified professional to 

visit and evaluate the site's importance and recommend a course of action. An evaluation and 

decision on the disposition of the cultural resource should be made within 48 hours of the 

discovery unless the project's schedule allows greater flexibility. 

When the land covered by a wildfire has not been inventoried for cultural resources and wildfire 

suppression activities do result in ground disturbing activities, we will take the following action. 

 Soon after fire control, the project leader will contact the RHPO to arrange for an archeologist to 

investigate the disturbed areas to determine if sites were affected. 

Refuge operations and maintenance funds (subactivity 1261) will pay the cost of these activities 

unless the action is an emergency archeological and historic property survey in unstable areas 
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prone to further degradation (i.e., erosion) following a wildland fire or in association with an 

emergency fire rehabilitation treatment. Emergency archeological and historic property surveys 

in unstable areas prone to further degradation (i.e., erosion) following a wildland fire or in 

association with an emergency fire rehabilitation treatment, and archeological, historic structure, 

cultural landscape, and traditional cultural property resource stabilization and rehabilitation can 

be funded with emergency rehabilitation funding (subactivity 9262). 

XVII. FIRE CRITIQUES AND ANNUAL PLAN REVIEW

The RM is responsible for conducting a fire review of all wildfires occurring on refuge lands. 

This review will normally yield information important to improving future suppression planning 

and implementation. Big Oaks NWR’s Fire Management Plan will be modified as needed based 

on fire review recommendations. 

This plan will be reviewed annually. Changes in format or content (including Directory 

changes) identified from the previous fire season will be incorporated by October 1. Cooperative 

Agreements will be reviewed prior to the start of the fire season. Other refuge plans associated 

with fire suppression and presuppression are reviewed annually as well. Changes will be 

documented and forwarded to the RFMC for review. 

A structured overhead team, brought in to manage a large incident, will be debriefed by the RM 

upon their release from the incident. The Incident Commander will prepare a written narrative of 

the fire activities and present it to the RM as a required part of the debriefing. The RM will 

assess the overhead team’s performance using the appropriate ICS evaluation form and submit a 

copy to the RFMC. 

XVIII. CONSULTATION AND COORDINATION

The intent of the fire management program at Big Oaks NWR is to protect and enhance natural 

resources in support of refuge management goals and objectives. Section 7 consultation 

procedures and smoke management guidelines will be followed. Maintaining a good working 

relationship with the Indiana Department of Natural Resources and Department of 

Environmental Management and other Agencies is essential to the overall fire management 

program. Throughout the planning stages of this document, the Service was in direct contact 

with the U.S. Fish and Wildlife Ecological Services Office at Bloomington, Indiana, the Indiana 

Division of Forestry and other state and Federal agencies. Through these contacts, throughout 

the planning and writing process, the Service was able to identify the concerns of these agencies 

and, where possible, incorporate their concerns and suggestions into this document. 
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APPENDICES 
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APPENDIX A

FEDERAL AND STATE SPECIES OF CONCERN 

THAT OCCUR OR ARE LIKELY TO OCCUR 

AT

BIG OAKS NATIONAL WILDLIFE REFUGE
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Status Common Name Scientific Name Federal 

Classifications

IN 

Classification

FE FT FSC E T SC

MUSSELSPresent-YR Salamander mussel Simpsonaias ambigua X medium 

mud an

CRUSTACEANPresent-YR Rusty Crayfish Orconectes rusticus N lacustrINSECTS Unlikely American Burying Beetle Nicrophorus americanus X X forest, 

woodla

Potential Dusted Skipper Atrytonopsis hianna X prairiePotential Mottled Duskywing Erynnis martialis X open bPotential Regal Fritillary Speyeria idalia X tall graAMPHIBIANSPresent-YR Mudpuppy Necturus maculosus X river, sPresent-YR N. Crawfish Frog Rana areolata circulosa X crawfiAMPHIBIANS cont’d.Potential Eastern Spadefoot Scaphiopus holbrookii 

holbrookii 

X forest 

REPTILESPresent-YR Kirtland’s Snake Clonophis kirtlandii X moist REPTILES cont’d.Suspected Rough Green Snake Opheodrys aestivus X riparia
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U.S. FISH & WILDLIFE SERVICE 63 

Potential N. Copperbelly Water 

Snake 

Nerodia erythrogaster neglecta

R/D swamp

BIRDSPresent-M Double-crested 

Cormorant 

Phalacrocorax auritus N lacustr

lands ((island

Potential-B Least Bittern Ixobrychus exilis X marsh Present-M American Bittern Botaurus lentiginosus X marshePotential-B Yellow-crowned NightHeron Nyctanassa violacea X moist wBIRDS cont’d.Present-M Black-crowned NightHeron Nycticorax nycticorax X moist wPresent-M Great Egret Ardea alba X marshePresent-B Great Blue Heron Ardea herodias X marshePresent-M Sandhill Crane Grus canadensis X marshePotential-B Blue-winged Teal Anas discors REC palustrPresent-B Mallard Anas platyrhynchos REC palustr

(matur

Present-M American Black Duck Anas rubripes REC lacustr

(shrub

Present-B Wood Duck Aix sponsa REC palustrPotential-B King Rail Rallus elegans X swampPresent-M Virginia Rail Rallus limicola X marshePotential-M Yellow Rail Coturnicops noveboracensis marshePresent-M Black Rail Laterallus jamaicensis marshe
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U.S. FISH & WILDLIFE SERVICE 64 

Present-B American Woodcock Scolopax minor R/D moist wPresent-M Bald Eagle Haliaeetus leucocephalus X X lacustrPresent-M Northern Harrier Circus cyaneus X wetlanPresent-YR Sharp-shinned hawk Accipter striatus X mixed Present-YR Red-shouldered hawk Buteo lineatus R/D X moist, Present-B Broad-winged Hawk Buteo platypterus X woodlaPresent-M Osprey Pandion haliaetus X riverinSuspect-M Peregrine Falcon Falco peregrinus X palustr

riverin

SuspectedYR Barn Owl Tyto alba X grasslaPresent-M Short-eared Owl Asio flammeus X marshePresent-M Marsh Wren Cistothorus palustris X marshePresent-B SedgeWren Cistothorus platensis R/D X moist Present-B Loggerhead Shrike Lanius ludovicianus R/D X open oPresent-M Golden-winged Warbler Vermivora chrysoptera X shrub/Present-B Black-and-White Warbler Mniotilta varia X mixed Present-B Cerulean Warbler Dendroica cerulea X swamp

mixed 

Potential-M Kirtland’s Warbler Dendroica kirtlandii X X open w

thicket

Present-M Canada Warbler Wilsonia canadensis X dense Present-B Hooded Warbler Wilsonia citrina X moist mPresent-B Worm-eating warbler Helmitheros vermivorus X mature 
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Present-B Grasshopper Sparrow Ammodramus savannarum R/D grasslaPresent-B Henslow’s Sparrow Ammodramus henslowii X moist mPotential-B Bachman’s Sparrow Aimophila aestivalis X dry opPresent-B Dickcissel Spiza americana R/D weedy Present-M Bobolink Dolichonyx oryzivorus R/D weedy Present-B Eastern Meadowlark Sturnella magna R/D fields, MAMMALSPresent-YR Bobcat Lynx rufus X mixed Present-YR River Otter Lutra canadensis X marshePotential-M Gray Bat Myotis grisescens X X caves Present-B Indiana Bat Myotis sodalis X X caves, Potential Smokey Shrew Sorex fumeus X moist wPLANTSPresent American Ginseng Panax quinquefolium X rich wPresent American Pinesap Monotropa hypopithes X woods Present Black Bugbane Cimicifuga racemosa X woods Present Blunt-lobe Grape-fern Botrychium oneidense X mature Present Broom Panic-grass Panicum scoparium X moist sPresent Barren Strawberry Waldsteinia fragarioides X woodsPresent Carolina Willow Salix caroliniana X streamPresent Clasping St. John’s Wort Hypericum gymnanthum X eroded Present Climbing Fern Lygodium palmatum X early s

woods 
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Present Clustered Foxglove Agalinis fasciculata X moist f

flatwo

Present Crinkleroot Dentaria diphylla X moist wPresent Dwarf Ginseng Panax trifolius X flatwo

forest 

Present Elliptical Rushfoil Crotonopsis elliptica X eroded 

roadba

Present False Hellebore Veratrum woodii X foreste

stream 

Present Fewflower Nutrush Scleria pauciflora X grassy Present Goldenseal Hydrastis canadensis X moist Present Illinois Woodsorrel Oxalis illinoensis X floodpPresent Lesser Ladies’-tresses Spiranthes ovalis X forest, Present Little Ladies’-tresses Spiranthes tuberosa X eroded 

forest 

Present Longbeak Arrowhead Sagittaria australis X wetlan

banks 

Present Louisiana Sedge Carex louisianica X floodpPresent Maryland Meadowbeauty Rhexia mariana var. mariana X moist, Present Narrow-leaved Sunflower Helianthus angustifolius X moist, Present Netted Chain-fern Woodwardia areolata X regrowPresent Northern bog Clubmoss Lycopodeiella inundata X shallow Present Pretty Sedge Carex woodii X moist Present Purple Fringeless Orchis Platanthera peramoena X moist m

swamp

Present Ragged-fringed Orchis Platanthera lacera X wet, op

flatwo
DEPARTMENT OF THE INTERIOR FI

U.S. FISH & WILDLIFE SERVICE 67 

Present Ridged Yellow Flax Linum striatum X flatwoPresent Round-leaved Boneset Eupatorium rotundifolium X grassy 

flatwo

Potential Running Buffalo Clover Trifolium stoloniferum X open wPresent Running Pine Lycopodium clavatum X regrowPresent Silver Bluestem Andropogon ternarius X old fiePresent Single-head Pussytoes Antennaria solitaria X woodsPresent Slick Seed Wild-bean Strophostyles leiosperma X eroded Present Small Sundrops Oenothera perennis X meadoPresent Smooth White Violet Viola blanda X mature Present Sparse-lobe Grape-fern Botrychium biternatum X old fiePresent Spotted Wintergreen Chimaphila maculata X upland Present Thicket Sedge Carex abscondita X moist fPresent Thread-like Naiad Najas gracillima X shallow Present Tree Clubmoss Lycopodium obscurum X regrowPresent Twining Bartonia Bartonia paniculata X open fPresent Wall-rue Spleenwort Asplenium ruta-muraria X limestoPresent Weakstalk Bulrush Scirpus purshianus X edge oPresent Wolf Bluegrass Poa wolfii X limesto

woods 

Present Yellow Buckeye Aesculus octandra X ravine 
DEPARTMENT OF THE INTERIOR FI

U.S. FISH & WILDLIFE SERVICE 68 Status: 

 Present-known to occur 

Suspected-some evidence that it occurs 

Potential-potentially within the species range 

 B-breeds on site, M-found on site during migratory periods, YR-found on site year round

Federal Classifications:

 Endangered (FE) - Any species that is in danger of extinction throughout all or a significant portion of its range. 

 Threatened (FT)- Any species that is likely to become endangered within the foreseeable future througho

portion of its range. Federally threatened species are designated with a “FT”. 

 Species of Concern (FSC)- An informal term referring to those species Region 3 believes might be in nee

conservation actions. These species of concern receive no legal protection and the use of the term does no

will eventually be proposed for listing as a threatened or endangered species. Federal species of concern a“FSC”. 

 R/D - rare/declining 

REC - recreational/economic value N - nuisance species 

Indiana Animal Classifications:

Endangered (E)- Any animal species whose prospects for survival or recruitment within the state are in immediate jeopard

disappearing from the state. This includes all species classified as endangered by the federal government which occur in InThreatened- An animal species whose survival in Indiana is not in immediate jeopardy, but to which a threat exists. Cont

stress will result in its becoming endangered. Special Concern (SC)- Any animal species about which some problems of limited abundance or distribution in Indiana are 

and should be closely monitored. 

Indiana Plant Classifications:

Endangered - Any plant species whose prospects for survival or recruitment within the state are in immediate jeopardy an

disappearing from the state. This includes all species classified as endangered by the federal government which occur in Inextant populations in the state. Threatened - Any species that is likely to become endangered within the state in the foreseeable future throughout all or a its range. Six to ten extant populations within the state. Rare - Eleven to twenty extant populations within the state. Watch List - Greater than (>) 20 extant populations, but populations are still considered at risk. 
DEPARTMENT OF THE INTERIOR FIRE MANAGEMENT PLAN 

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APPENDIX B 

COOPERATIVE AGREEMENTS 
DEPARTMENT OF THE INTERIOR FIRE MANAGEMENT PLAN 

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COOPERATIVE FIRE PROTECTION AGREEMENT No. 301815J073 

BETWEEN THE U.S. DEPARTMENT OF THE INTERIOR FISH 

AND WILDLIFE SERVICE AND THE 

 KENT VOLUNTEER FIRE DEPARTMENT 

THIS AGREEMENT was made and entered into April 4, 2005 pursuant to the Reciprocal Fire 

Protection Act of 1955 (42 V.S.C. 1856) as amended by the Wildfire Suppression Assistance Act 

of 1989 (16 U.S.C. 2106). It is between the United States Department of the Interior, Fish and 

Wildlife Service, Big Oaks National Wildlife Refuge (hereinafter referred to as the "Refuge") 

and the Kent Volunteer Fire Protection District (hereinafter referred to as the "Fire 

Department"). This Agreement outlines the cooperative efforts between the Refuge and the Fire 

Department for fire protection, and specifically authorizes the expenditure of funds for any fire 

protection activity resulting from its execution. 

THE FIRE DEPARTMENT SHALL: 

1. Provide wildland fire prevention and suppression equipment and prescribed fire equipment as 

available (such as mobile pumpers and grass rigs, shovels and fire rakes, etc.) as well as 

fire service personnel. The following equipment will be available at commencement of 

this agreement: Brush Truck-1995 Dodge (200 gallon with foam), Water Tender-1999 

Kenworth (2,000 gallon), Fire Engine-2002 Kenworth (1,000 gallon) Water Tender-l 983 

GMC (1,500 gallon) 

2. Respond to all wildland fires in the Refuge boundaries that are within the Fire Department's 

 designated fire protection area, as requested by Refuge Management. 

3. At the discretion ofthe Fire Chief upon request by Refuge Management., respond to all 

wildland fires within the Refuge's boundaries but outside of the Fire Department's 

designated fire protection area. This response will include mutual aid calls. 

4. Agree to stay with all wildland fires until out, or until released from duty by the designated 

Incident Commander for the Refuge, or until called to another fire or other structure 

fires in the Fire Department's designated protection area. 

5. Submit billings for wildland fire actions on Refuge lands within 48 hours of each fire. 

 Billings must reference "Fire Protection Agreement No. 301815J 073" and be submitted 

to 
DEPARTMENT OF THE INTERIOR FIRE MANAGEMENT PLAN 

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72 FEBRUARY 2006 

Big Oaks National Wildlife 

Refuge 1661 W. IPG Niblo 

Madison, IN 47250 

THE REFUGE 

SHALL: 

1. Reimburse the Fire Department at a flat rate of $200.00 for the first hour of services 

required under "THE FIRE DEPARTMENT SHALL" section of this Cooperative 

Agreement, and $100.00 for each additional half hour thereafter. These flat 

reimbursement rates shall pertain, whether one or two wildland firefighting vehicles are 

sent to the Refuge wildland fire site. In addition to these amounts, the Fire Department 

shall be reimbursed $10.00 per hour for each Fire Department firefighter working on the 

wildland fire site, and shall also be reimbursed $100.00 per hour for a third or each 

additional wildland firefighting vehicle(s) owned by the Fire Department and needed by 

the Service's Incident Commander. Reimbursement at these price rates shall include 

reasonable transit times from and to the Fire Department station. Invoices must include 

a list of firefighters by name with times and hours each worked, and must also list the 

number and types of firefighting vehicles owned and used by the Fire Department 

during the call (including the times and number of hours each vehicle was used during 

the call). 

2. Assist the Fire Department with wildland fire 

training 

3. Assume the role of "Incident Commander'~ on any fire within the boundaries of the 

Refuge once Refuge personnel are on the scene. 

5. Respond with available manpower and equipment, upon the request of the Fire Chief, 

on wildland fires outside of the Refuge boundaries. 

SPECIAL 

PROVISIONS: 

1. Each party agrees that it will be responsible for its own acts and the results thereof and shall 

not be responsible for the acts of the other party and the results thereof. Each party 

therefore agrees, to the extent authorized by applicable law, to assume all risks and 

liability to itself, its agents or employees, for any injury to persons or property resulting 

from any operations of its agents or employees under this agreement, and for any loss, 

cost, damage or expense resulting at any time from any and all causes due to any acts, 

or negligence, or the failure to exercise proper precautions of or by itself or its own 

agents to this Agreement. The liability of the Federal Government will be governed by 

the Federal Tort Claims Act (28 US.c. Section 2761 et seq.) while the liability of the 

Fire Department will be governed by applicable federal and state laws. 
DEPARTMENT OF THE INTERIOR FIRE MANAGEMENT PLAN 

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2. Repairs needed to keep operational any equipment covered by this agreement will be 
DEPARTMENT OF THE INTERIOR FIRE MANAGEMENT PLAN 

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74 FEBRUARY 2006 
DEPARTMENT OF THE INTERIOR FIRE MANAGEMENT PLAN 

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ATTACHMENT A

GENERAL PROVISIONS FOR FINANCIAL 

ASSISTANCE

The following Regulations and OMB (Office of Management and Budget) Circulars are hereby 

incorporated by reference in this agreement 

A. THE FOLLOWING REGULATIONS APPLY TO RECIPIENTS 

as indicated: 

1.43 CFR Part 12: 

 a. Subpart A - Administrative and Audit Requirements and Cost Principles for 

Assistance Programs. (All Recipients) 

 b. Subpart B - Audit Requirements for State and Local Governments. 

 c. Subpart C - Uniform Administrative Requirements for Grants and Cooperative 

Agreements to State and Local Governments. 

 d. Subpart D - Government wide Debarment and Suspension (Nonprocurement) and 

Government wide Requirements for Drug-Free Workplace (Grants). (All 

 recipients) 

 e. Subpart E - Buy American Requirements for Assistance Programs. (All recipients) 

 f. Subpart F - Uniform Administrative Requirements for Grants ~d Agreements 

With Institutions of Higher Education, Hospitals, and Other Non-Profit 

 Organizations. 

B. . PROFIT ORGANIZATIONS and 

INDIVIDUALS 

1. 48 CFR Part 31.2 (Federal Acquisition Regulations) - Cost Principles for 

Contracts with 

 Commercial Organizations. 

The above is implemented by the 

following as indicated: 

A. NON-PROFIT ORGANIZATIONS including INSTITUTIONS OF HIGHER 

EDUCATION & 

 HOSPITALS 

1.0MB Circular A-IIO - Uniform Administrative Requirements for Grants and 

Agreements with 

Institutions of Higher Education, Hospitals and Other Non-Profit 

Organizations. 

2. OMB Circular A-21 - Cost Principles for Educational Institutions. 
DEPARTMENT OF THE INTERIOR FIRE MANAGEMENT PLAN 

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3. OMB Circular A-I22 - Cost Principles for Non-Profit Organizations. 

4. OMB Circular A-133 - Audits of Institutions of Higher Education and Other NonProfit 

Organizations. 

A. STATE/LOCAL GOVERNMENT and 

INDIAN TRIBES 

1. 0MB Circular A-I02 - Uniform Administrative Requirements for Grants and 

Agreements with 

State and Local Governments. 

2. OMB Circular A-87 - Cost Principles for State and Local Governments. 

3. OMB Circular A-I28 - Audits of State and Local Government
DEPARTMENT OF THE INTERIOR FIRE MANAGEMENT PLAN 

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OMB Approval No. 0348-0040 

ASSURANCES - NON-CONSTRUCTION PROGRAMS

Public reporting burden for this collection of information is estimated to average 15 minutes per response, including time for reviewing 

instructions, searching existing data sources, gathering and maintaining the data needed, and completing and reviewing the collection of 

information. Send comments regarding the burden estimate or any other aspect of this collection of information, including suggestions for 

reducing this burden, to the Office of Management and Budget, Paperwork Reduction Project (0348-0040), Washington, DC 20503.

PLEASE DO NOT RETURN YOUR COMPLETED FORM TO THE OFFICE OF MANAGEMENT AND BUDGET. 

 SEND IT TO THE ADDRESS PROVIDED BY THE SPONSORING AGENCY.

NOTE: Certain of these assurances may not be applicable to your project or program. If you have questions, please contact the 

awarding agency. Further, certain Federal awarding agencies may require applicants to certify to additional assurances. 

If such is the case, you will be notified.

As the duly authorized representative of the applicant, I certify that the applicant:

1. Has the legal authority to apply for Federal assistance and the 

 institutional, managerial and financial capability (including 

 funds sufficient to pay the non-Federal share of project cost) 

 to ensure proper planning, management and completion of 

 the project described in this application. 

2. Will give the awarding agency, the Comptroller General of 

 the United States and, if appropriate, the State, through any 

 authorized representative, access to and the right to examine 

 all records, books, papers, or documents related to the award; 

 and will establish a proper accounting system in accordance 

 with generally accepted accounting standards or agency 

 directives. 

3. Will establish safeguards to prohibit employees from using 

 their positions for a purpose that constitutes or presents the 

 appearance of personal or organizational conflict of interest, 

 or personal gain. 

4. Will establish safeguards to prohibit employees from using 

 their positions for a purpose that constitutes or presents the 

 appearance of personal or organizational conflict of interest, 

 or personal gain. 

5. Will comply with the Intergovernmental Personnel Act of 

 1970 (42 U.S.C. 4728-4763) relating to prescribed standards 

 for merit systems for programs funded under one of the 19 

 statutes or regulations specified in Appendix A of OPM’s 

 Standards for a Merit System of Personnel Administration (5 

 C.F.R. 900, Subpart F). 

6. Will comply with all Federal statutes relating to 

 nondiscrimination. These include but are not limited to: (a) 

 Title VI of the Civil Rights Act of 1964 (P.L. 88-352) which 

 prohibits discrimination on the basis of race, color or 

 national origin; (b) Title IX of the Education Amendments of 

 1972, as amended (20 U.S.C. 1681-1683, and 1685-1686), 

 which prohibits discrimination on the basis of sex; (c) 

 Section 504 of the Rehabilitation Act of 1973, as amended 

 (29 U.S.C. 794), which prohibits discrimination on the 

 basis of handicaps; (d) the Age Discrimination Act of 

 1975, as amended (42 U.S.C. 6101-6107), which 

 prohibits discrimination of the basis of age; (e) the Drug 

 Abuse Office and Treatment Act of 1972 (P.L. 92-255), 

 as amended, relating to nondiscrimination on the basis of 

 drug abuse; (f) the Comprehensive Alcohol Abuse and 

 Alcoholism Prevention, Treatment and Rehabilitation Act 

 of 1970 (P.L. 91-616), as amended, relating to 

 nondiscrimination on the basis of alcohol abuse or 

 alcoholism; (g) 523 and 527 of the Public Health Service 

 Act of 1912 (42 U.S.C. 290 dd-3 and 290 ee-3), as 

 amended, relating to confidentiality of alcohol and drug 

 abuse patient records; (h) Title VII of the Civil Rights Act 

 of 1968 (42 U.S.C. 3601 et seq.), as amended, relating to 

 nondiscrimination in the sale, rental or financing of 

 housing; (i) any other nondiscrimination provisions in 

 the specific statute(s) under which application for Federal 

 assistance is being made; and (j) the requirements of any 

 other nondiscrimination statute(s) which may apply to the 

 application. 

7. Will comply, or has already complied, with the 

 requirements of Titles II and III of the Uniform 

 Relocation Assistance and Real Property Acquisition 

 Policies Act of 1970 (P.L. 91-646) which provide for fair 

 and equitable treatment of persons displaced or whose 

 property is acquired as a result of Federal or federally- 

 assisted programs. These requirements apply to all 

 interests in real property acquired for project purposes 

 regardless of Federal participation in purchases. 

8. Will comply, as applicable, with provisions of the Hatch 

 Act (5 U.S.C. 1501-1508 and 7324-7328) which limit the 

 political activities of employees whose principal 

 employment activities are funded in whole or in part with 

 Federal funds. 

Previous Edition Usable 

Standard Form 424B (Rev 7-97) 
DEPARTMENT OF THE INTERIOR FIRE MANAGEMENT PLAN 

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9. Will comply, as applicable, with the provisions of 

the Davis-Bacon Act (40 U.S.C. 276a to 276a-7), the 

Copeland Act (40 U.S.C. 276c and 18 U.S.C. 874), and 

the Contract Work Hours and Safety Standards Act (40 

U.S.C. 327-333), regarding labor standards for 

federally-assisted construction subagreement. 

10. Will comply, if applicable, with flood insurance 

purchase requirements of Section 102(a) of the Flood 

Disaster Protection Act of 1973 (P.L. 93-234) which 

requires recipients in a special flood hazard area to 

participate in the program and to purchase flood 

insurance if the total cost of insurable construction and 

acquisition is $10,000 or more. 

11. Will comply with environmental standards which 

may be prescribed pursuant to the following: (a) 

institution of environmental quality control measures 

under the National Environmental Policy Act of 1969 

(P.L. 91-190) and Executive Order (EO) 11514; (b) 

notification of violating facilities pursuant to EO 

11738; (c) protection of wetlands pursuant to EO 

11990; (d) evaluation of flood hazards in flood plains 

in accordance with EO 11988; (e) assurance of project 

consistency with the approved State management 

program developed under the Coastal Zone 

Management Act of 1972 (16 U.S.C. 1451 et seq.); (f) 

conformity of Federal actions to State (Clean Air) 

Implementation Plans under Section 176(c) of the 

Clean Air Act of 1955, as amended (42 U.S.C. 7401 et 

seq.); (g) protection of underground sources of 

drinking water under the Safe Drinking Water Act of 

1974, as amended (P.L. 93-523); and, (h) protection of 

endangered species under the Endangered Species Act 

of 1973, as amended (P.L. 93-205). 

12. Will comply with the Wild and Scenic Rivers Act of 1968 (16 

U.S.C. 1271 et seq.) Related to protecting components or potential 

components of the national wild and scenic rivers system. 

13. Will assist the awarding agency in assuring compliance will 

Section 106 of the National Historic Preservation Act of 1966, as 

amended (16 U.S.C. 470), EO 11593 (identification and protection 

of historic properties), and the Archaeological and Historic 

Preservation Act of 1974 (16 U.S.C. 469a-1 et seq.). 

14. Will comply with P.L. 93-348 regarding the protection of 

human subjects involved in research, development, and related 

activities supported by this award of assistance. 

15. Will comply with the Laboratory Animal Welfare Act of 1966 

(P.L. 89-544, as amended, 7 U.S.C. 2131 et seq.) Pertaining to the 

care, handling, and treatment of warm blooded animals held for 

research, teaching, or other activities supported by this award of 

assistance. 

16. Will comply with the Lead-Based Paint Poisoning Prevention 

Act (42 U.S.C. 4801 et seq.) Which prohibits the use of lead-based 

paint in construction or rehabilitation of residence structures. 

17. Will cause to be performed the required financial and 

compliance audits in accordance with the Single Audit Act 

Amendments of 1996 and OMB Circular No. A-133, “Audits of 

States, Local Governments, and Non-Profit Organizations.” 

18. Will comply with all applicable requirements of all other 

Federal laws, executive orders, regulations, and policies governing 

this program. 

SIGNATURE OF AUTHORIZED CERTIFYING OFFICIAL TITLE 

APPLICANT ORGANIZATION DATE SUBMITTED 

Standard Form 424B (Rev. 7-97) Back 
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MASTER COOPERATIVE FIRE PROTECTION AGREEMENT

Between

NATIONAL PARK SERVICE

INDIANA DUNES NATIONAL LAKESHORE 

UNITED STATES FISH AND WILDLIFE SERVICE

BIG OAKS NATIONAL WILDLIFE REFUGE 

UNITED STATES DEPARTMENT OF AGRICULTURE

FOREST SERVICE

HOOSIER NATIONAL FOREST

STATE OF INDIANA 

DEPARTMENT OF NATURAL RESOURCES

DIVISION OF FORESTRY-FIRE CONTROL
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By THE FOLLOWING AUTHORITIES:

Reciprocal Fire Protection Act of May 27, 1955 (69 Stat. 66; 42 U.S.C. 1856)(Federal Agencies) 

Economy Act of June 30, 1932 (31 U.S.C., 1535 as amended)(Federal Agencies) 

Disaster Relief Act of May 22, 1974 (42 U.S.C. 5121 as amended)(Federal Agencies) 

Robert T. Stafford Disaster Relief and Emergency Assistance Act (P.L. 93-288) (Federal Agencies) 

Taylor Grazing Act of June 28, 1934 (48 Stat. 1269; 43 U.S.C. 315)(FS) 

Granger-Thye Act of April 24, 1950 (16 U.S.C., Sec 572)(FS) 

Cooperative Funds and Deposits Act of Dec 12, 1975 (P.L. 94-148, 16 U.S.C. 565)(FS) 

Cooperative Forestry Assistance Act of July 1, 1978, as amended (16 U.S.C. 2101)(FS) 

Cooperative Funds Act of June 30, 1914 (16 U.S.C. 498)(FS) 

NPS Organic Act (16 U.S.C.1)(NPS) 

National Wildlife Refuge Administration Act of 1966 (16 U.S.C. 668dd-668ee, 80 Stat. 927, as amended) 

(FWS) 

National Wildlife Refuge System Improvement Act of 1997 (P.L. 105-57) (FWS) 

Indiana Code 14-23-3,5,67 
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TABLE OF CONTENTS 

AUTHORITIES ............................................................................................................................. 2 

PURPOSE....................................................................................................................................... 6 

RECITALS (Clause 1 through 6) ................................................................................................. 7

INTERAGENCY COOPERATION ............................................................................................ 7 

 7. Pacific Northwest Wildfire Coordinating Group (PNWCG)........................... 7 

 8. National Interagency Incident Management System........................................ 7 

 9. Annual Operating Plans...................................................................................... 8 

A. Northwest Area Operating Plans .......................................................... 8 

B. Statewide Operating Plans..................................................................... 8 

C. Local Operating Plans........................................................................... 8 

D. Project Plans............................................................................................ 8 

10. Interagency Dispatch Centers............................................................................. 8 

11. Northwest Coordination Center ......................................................................... 9 

12. Interagency Resources......................................................................................... 9 

13. Standards.............................................................................................................. 9 

PREPAREDNESS.......................................................................................................................... 9 

14. Definition of Responsibilities .............................................................................. 9 

15. Protection Planning ............................................................................................. 9 

17. Reciprocal Fire Protection Assistance ............................................................. 10 

18. Acquisition of Fire Management Services ....................................................... 10 

A. Reimbursable ........................................................................................ 10 

B. Offset...................................................................................................... 10 

C. Fee Basis................................................................................................ 10 

19. Joint Projects and Project Plans....................................................................... 10 

20. Fire Prevention................................................................................................... 11 

21. Public Use Restrictions...................................................................................... 11 

22. Burning Permits................................................................................................. 11 

23. Prescribed Fire and Fuel Management............................................................ 11 

24. Smoke Management .......................................................................................... 11 

OPERATIONS ............................................................................................................................. 11 

25. Closest Forces Concept...................................................................................... 11 

26. Fire Notifications................................................................................................ 12 

27. Boundary Line Fires.......................................................................................... 12 

28. Independent Action............................................................................................ 12 

29. Escaped Prescribed Fires .................................................................................. 12 

30. Reciprocal Suppression Operations ................................................................. 12 

31. Land Management Considerations .................................................................. 13 

32. Delegation of Authority ..................................................................................... 13 

33. Resource Advisor ............................................................................................... 13 

34. Preservation of Evidence................................................................................... 13 
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USE AND REIMBURSEMENT OF INTERAGENCY FIRE RESOURCES........................ 13 

35. Appropriated Fund Limitation......................................................................... 13 

36. Duration of Assignments ................................................................................... 13 

37. Supplemental Fire Suppression Agreement .................................................... 14 

38. Procurement....................................................................................................... 14 

39. Loaned Equipment and Supplies...................................................................... 14 

40. Licensing............................................................................................................. 14 

41. Training .............................................................................................................. 14 

42. Communication Systems ................................................................................... 14 

43. Fire Weather Systems........................................................................................ 14 

44. Aviation Operations........................................................................................... 14 

45. Billing Procedures.............................................................................................. 15 

A. Suppression Billings............................................................................. 15 

1. Federal Billings ........................................................................ 15 

2. State Billings............................................................................. 15 

3. Billing Estimates and Time Frames ....................................... 15 

4. Billing Content ......................................................................... 15 

5. Payment Due ............................................................................ 15 

6. Contested Billings .................................................................... 15 

B. Fee Basis Acquisition of Services......................................................... 16 

C. Non-Suppression (e.g., Fuels Treatment) Billings.............................. 16 

46. Third Party Cost Recovery ............................................................................... 16 

GENERAL PROVISIONS.......................................................................................................... 16 

47. Personnel Policy ................................................................................................. 16 

48. Mutual Sharing of Information ........................................................................ 16 

49. Initial Attack Cost Recovery............................................................................. 16 

50. Accident Investigations...................................................................................... 16 

51. Purchaser, Contractor, Operator, Permittee, Etc., Fires............................... 17 

52. Non-Fire Emergencies ....................................................................................... 17 

53. Waiver................................................................................................................. 17 

54. Amendments....................................................................................................... 17 

55. Annual Review ................................................................................................... 17 

56. Duration of Agreement...................................................................................... 17 

57. Previous Agreements Canceled ........................................................................ 17 

SIGNATURES.............................................................................................................................. 20 

GLOSSARY OF TERMS............................................................................................................ 21

OPERATING PLAN OUTLINE GUIDE.................................................................................. 25 

SUPPLEMENTAL FIRE SUPPRESSION AGREEMENT..................................................... 28 

SUPPLEMENTAL PROJECT PLAN ....................................................................................... 33 
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 PURPOSE

The purpose of this Master Cooperative Fire Protection Agreement (hereinafter called the Agreement) is 

to document the commitment of the Parties to this Agreement to improve efficiency by facilitating the 

exchange of personnel, equipment, supplies, services, and funds among the agencies. The Parties to this 

Agreement are: 

 The State of Indiana Division of Forestry, hereinafter called Indiana; and 

 The United States Department of Agriculture Forest Service, Region 9-Hoosier National Forest, 

hereinafter called the “USFS”; and 

 The United States Department of the Interior, National Park Service, Indiana Dunes National 

Lakeshore, hereinafter called the “NPS”; and 

 The United States Department of the Interior, Fish and Wildlife Service, Big Oaks National Wildlife 

Refuge, hereinafter called “FWS”; and 

 The USFS, NPS, and FWS may hereinafter be jointly called the "Federal Agencies." 

The Federal Agencies and the States signatory to this Agreement will hereinafter be referred to as the 

"Parties to this Agreement." 

Words and phrases used herein may have different meanings or interpretations for different readers. To 

establish a "common" understanding, words and phrases as used herein are defined in a Glossary attached 

as EXHIBIT A. 

RECITALS

 1. Lands for which the States are responsible for wildland fire protection in Indiana, and the lands for 

which the respective Federal Agencies are responsible, are intermingled or adjacent in some areas, 

and wildland fires on these intermingled or adjacent lands may present a threat to the lands of the 

other; 

 2. The Parties to this Agreement maintain fire protection organizations; 

 3. It is to the mutual advantage of the Parties to this Agreement to coordinate efforts for the prevention, 

detection, and suppression of wildfires, fuels management, and cooperative projects for resource 

protection in and adjacent to their areas of responsibility, and to limit duplication and improve 

efficiency and effectiveness; 

 4. It is the intent of the Parties hereto that State resources be available to assist in fire management 

activities on all federal lands, and on other lands upon which the Federal Agencies are responsible to 

protect; 

5. It is the intent of the Parties hereto that federal resources be available to assist in fire management 

activities on all state and private lands the States are responsible to protect; 
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6. The USFS, BLM, BIA, NPS, and FWS have entered into a national Interagency Agreement for Fire 

Management to cooperate in all aspects of fire management; 

In consideration of the mutual commitments and conditions herein made, it is agreed as follows: 

INTERAGENCY COOPERATION

 7. National Interagency Incident Management System: The Parties to this 

Agreement will operate under the concepts defined in the National Interagency Incident 

Management System (NIIMS) including: Incident Command System (ICS), qualifications system, 

training system, the management of publications, and participate in the review, exchange, and 

transfer of technology as appropriate for providing qualified resources, and for the management of 

incidents covered by this Agreement. 

8. Annual Operating Plans: Annual operating plans may be developed at the State level and will tier 

to this Agreement (see Exhibit B, Operating Plan Outline Guide). The following annual operating 

plans are listed in descending order of precedence: 

A. Statewide Operating Plans

Statewide Operating Plans will address issues affecting statewide cooperation. The Statewide 

Operating Plans will be approved by the affected State and Federal PNWCG members. 

The Statewide Mobilization Guides will be identified as, and considered part of the Statewide 

Operating Plans. 

B. Project Plans

Project plans are plans developed for specific projects. Such projects will be documented in 

local agreements, or other appropriate written documents. Documentation will include the 

objectives, role of each agency, and each agency’s share of cost (See Exhibit D for a 

Supplemental Project Plan). 

9. Interagency Dispatch Centers: The Parties to this Agreement agree to maintain, support, and 

participate in local Interagency Dispatch Center, as appropriate. 

Staffing, funding, and level of participation will be agreed to and documented in annual operating 

plans and/or appropriate Mobilization Guides. 

10. Interagency Resources: Interagency funding, staffing, and utilization of resources and facilities 

will be pursued whenever an interagency approach is appropriate and cost effective. Shared staffing 

and funding will be commensurate with each agency's use of resources and will be agreed to and 

documented in local operating plans. 

To the extent practical, additional preparedness resource requests will be coordinated. The 

coordination process will be identified in the annual operating plan. 

11. Standards: It is the goal of the Parties to this Agreement to achieve common standards within the 

Parties’ best interest. Until common standards are achieved, each Party to this Agreement 
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recognizes that other agency standards are reasonable, prudent, and acceptable. Local 

representatives will manage situations where standards vary. This clause is not intended to affect the 

jurisdictional agency’s land management considerations (see Clause 31, Land Management 

Considerations). 

 

 PREPAREDNESS

12. Definition of Responsibilities: The Parties to this Agreement shall be distinguished as follows: 

Jurisdictional Agency - The agency that has overall land and resource management and/or protection 

responsibility as provided by federal or state law. Under no circumstances will a jurisdictional 

agency abdicate legal requirements as provided by federal or state law. 

Protecting Agency - The agency providing fire management services to a given area pursuant to this 

Agreement. 

Supporting Agency - An agency providing assistance. 

13. Protection Planning: Annually, before February 15, local Unit Administrators will determine 

efficiencies to be gained from reciprocal assistance and acquisition of protection services. Annual 

operating plans will document decisions. Plans should be reviewed and agreement reached 

concerning such items as placement of crews, engines, air tankers, helicopters, fixed and aerial 

detection, regulated use, closures and other joint fire suppression efforts. 

14. Protection Areas and Boundaries: Protection areas, as defined by boundaries, will be mapped and 

or described, and made a part of annual operating plans. 

15. Reciprocal Fire Protection Assistance: Reciprocal fire suppression assistance that is 

approximately equal between agencies will be determined and mapped where necessary for field use. 

 Reciprocal assistance will be rendered when the Parties to this Agreement are in a position to 

furnish resources or services. 

16. Acquisition of Fire Management Services: One agency may provide fire management services on 

lands under the jurisdiction of another. Factors to consider in establishing the fee or rate of 

exchange will be based upon equivalent comparable costs, acreage involved, complexity, workload, 

staffing, organization, performance, and/or available resources with consideration for values at risk, 

and other factors as may be appropriate and mutually agreed to by the affected Parties to this 

Agreement. If an imbalance exists, the protecting agency will bill the jurisdictional agency. The 

terms and conditions of such arrangements must be included in annual operating plans. 

Opportunities for acquisition of services will be evaluated and mapped when necessary. 

Considerations may include: 

A. Reimbursable

Paid assistance in the form of personnel, equipment and services. 

B. Offset
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Exchange of fire management services in specific locations that is anticipated to be 

approximately equal value between agencies. 

C. Fee Basis

One agency provides fire management services on the lands under the jurisdiction of another and 

payment is provided for the service. 

17. Joint Projects and Project Plans: The Parties to this Agreement may jointly conduct cooperative 

projects, within their authority and as authorized by law, to maintain or improve their fire 

management services and activities. These projects may involve such activities as prescribed 

fire/fuels management, presuppression, fire analysis/planning, rehabilitation, training, prevention, 

public affairs, and other beneficial efforts. Such projects will be documented in local operating 

plans, or other appropriate written documents. Documentation will include the objectives, role of 

each agency, and each agency's share of costs. 

Project plans may be executed by Unit Administrators of agencies party to this Agreement. Bill 

according to Clause 45C. 

18. Fire Prevention: The Parties to this Agreement agree to cooperate in the development and 

implementation of fire prevention programs. Unit Administrators will assure that fire prevention 

goals and activities are planned at local levels and are addressed in annual operating plans. Specific 

fire prevention plans should be developed by local interagency fire management personnel. The 

Parties to this Agreement may pool resources and share costs. Unit Administrators are encouraged 

to participate in local fire prevention cooperatives. 

19. Public Use Restrictions: Guidelines for implementing restrictions and closures shall be established 

by a separate Memorandum of Understanding and in the Northwest Annual Operating Plan. 

20. Burning Permits: Burning permit procedures, where applicable, will be included in local annual 

operating plans. Federal employees or their agents, as authorized by law, may be granted authority 

by the States to operate as fire wardens when it is determined to be in their mutual interest. 

21. Prescribed Fire and Fuel Management: The Parties to this Agreement agree to cooperate in the 

development and implementation of prescribed fire and fuels management programs, whose primary 

interest is to reduce fire hazard. 

Any Party to this Agreement may provide assistance to another Party as requested and agreed to for 

the purposes of performing prescribed fire or other fuels management work. Conditions of the 

assistance and details related to reimbursement will be agreed to and documented, through the 

procurement or project plan process (see Exhibit D, Supplemental Project Plan). 

22. Smoke Management: Within their authorities, the Parties to this Agreement agree to cooperate in 

smoke management programs. 

OPERATIONS

23. Closest Forces Concept: The guiding principle for dispatch of initial attack suppression resources 
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is to use the closest available resource regardless of which agency they belong to, and regardless of 

which agency has protection responsibility. 

 24. Fire Notifications: Each agency will promptly notify the appropriate protecting agency of fires 

burning on or threatening lands for which that agency has protection responsibility. Likewise, 

protecting agencies will promptly inform jurisdictional agencies whenever they take action on fires 

for which the protecting agency is responsible. Fire reports will be sent to jurisdictional agencies 

within 30 days after a fire is declared out. 

25. Boundary Line Fires: A boundary line fire, as defined in Exhibit A, will be the initial attack 

responsibility of the protecting agencies on either side of the boundary. Neither agency will assume 

the other agency is aware of the fire or that the other agency will take action. Each agency will 

make every reasonable effort to communicate with the other concerning the fire. The affected 

agency individual in charge who arrives on the fire first will act as Incident Commander. When 

affected agencies have arrived, the agencies will mutually agree to the designation of an Incident 

Command organization. 

26. Independent Action: Except as otherwise limited in annual operating plans, nothing herein shall 

prohibit any agency, on its own initiative, from going upon lands known to be protected by another 

Party to this Agreement to engage in suppression of wildfires, when such fires are a threat to lands 

that are that agency's protection responsibility. These actions will be commensurate with the 

jurisdictional agencies land management considerations. In such instances, the party taking action 

will promptly notify the protecting agency. 

27. Escaped Prescribed Fires and Wildland Fire Managed for Resource Benefits: Wildfire 

resulting from prescribed fire and wildland fire managed for resource benefits that were ignited by, 

managed at the direction of, under the supervision of, or on lands under the jurisdiction of one of the 

Parties to this Agreement shall be the responsibility of the Party providing protection. All 

suppression costs shall be billed to that responsible Party. The Parties to this Agreement will not 

hold each other responsible under this clause for escaped prescribed fires and wildland fire managed 

for resource benefits originating on private land, or on state or federal lands not protected by one of 

the Parties to this Agreement. 

If the Parties to this Agreement conduct a cooperative prescribed fire, the responsibility for 

suppression costs, should it escape, shall be agreed upon and documented in the project plan. 

28. Reciprocal Suppression Operations: As deemed appropriate, the Parties to this Agreement may 

establish reciprocal initial attack zones for lands of intermingled or adjoining protection 

responsibility. Such zones will be mapped and the maps made a part of annual operating plans. 

Initial attack on all fires occurring on lands of intermingled or adjoining protection responsibility 

will be in accordance with the planned dispatch procedures. The plan shall provide for regular 

contact between field units to determine availability of reciprocal fire suppression forces. 

If a fire is controlled by the planned initial attack forces within the first 24-hour period, and no 

additional resources are required, there shall be no claim for reimbursement. 

If a fire is not controlled by the initial attack resources within the first 24-hour period, or if 

reinforcements or services are requested by the protecting agency, the protecting agency will 

reimburse the supporting agency for all reimbursable costs not identified as initial attack. 

If it is determined that a fire will not be controlled in the first 24-hour period, the protecting agency 
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must take over the fire or request that the initial attack party continue suppression action beyond the 

24-hour period. 

29. Land Management Considerations: All fire suppression action taken by the protecting agency 

will be consistent with the jurisdictional agency's land management considerations and the terms of 

this Agreement, and will be documented in annual operating plans. 

30. Delegation of Authority: Annual operating plans will document procedures and criteria for Unit 

Administrators to specify direction and authority to Incident Commanders for large incidents. 

31. Resource Advisor: Unless otherwise agreed, the jurisdictional agency may provide a Resource 

Advisor to advise the protecting agency of any conditions which may influence suppression action. 

The Incident Commander will incorporate conditions in the incident planning process, subject to the 

Delegation of Authority. 

32. Preservation of Evidence: As initial action is taken on a fire, the initial attack forces will preserve 

information and evidence pertaining to the origin and cause of the fire. Protecting and jurisdictional 

agencies shall render mutual assistance in the gathering of evidence to the fullest extent practicable. 

 Affected agencies will meet to determine an investigation process. 

USE AND REIMBURSEMENT OF INTERAGENCY FIRE RESOURCES

33. Appropriated Fund Limitation: Nothing herein shall be considered as obligating the Parties to 

this Agreement to expend funds, or as involving the United States or the State of Indiana in any 

contract or other obligation for the future payment of money in excess of funding approved and 

made available for payment under this Agreement and modifications thereto. 

34. Duration of Assignments: Consideration must be given to the health and safety of personnel when 

assigned to fires. The Parties to this Agreement agree that Incident Commanders will release 

suppression resources to their primary responsibilities as soon as priorities allow. Incident 

Commanders shall adhere to rest and rotation policies of respective responding agencies. 

35. Supplemental Fire Suppression Agreement: Except as otherwise provided by Clauses 28 

(Independent Action), 30 (Reciprocal Suppression Operations), and 45 (Billing Procedures), a 

supplemental fire agreement will be prepared by the responsible Unit Administrators (as defined in 

EXHIBIT A, Glossary) or their authorized representatives when the incident involves lands of more 

than one protecting agency (see Clause 27, Boundary Line Fires, and EXHIBIT C, Supplemental 

Fire Suppression Agreement). 

A Supplemental Fire Suppression Agreement, in order to document cost sharing, may be used for 

temporary support functions or facilities established during periods of high fire danger or activity. 

36. Procurement: At the time of the incident, the affected agencies will determine which agency’s 

procurement procedures will be utilized. 

37. Loaned Equipment and Supplies: Equipment and supplies loaned to another agency shall become 

the responsibility of that agency, and shall be returned in the same condition as when received, 

reasonable wear and tear excepted. The receiving agency will repair or reimburse for damages in 

excess of reasonable wear and tear and will replace or reimburse for items lost, destroyed, or 
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expended. 

38. Licensing: Drivers and equipment operators will hold appropriate operating licenses to meet state 

and federal laws. Employees of the Parties to this Agreement may operate each other's vehicles 

provided the operator meets the current operating guidelines and training requirements of their own 

agency. 

39. Training: The Parties to this Agreement will cooperate to assure that training needs are provided 

that will produce safe and effective fire management and aviation programs. The intent is to 

champion high quality training, to minimize training costs by sharing resources, and to standardize 

training. 

40. Communication Systems: The Parties to this Agreement may mutually agree to allow one another 

the use of communications systems such as radio frequencies, computer system access, data 

transmission lines, and communication sites when there is a mutual benefit to the parties. Such 

agreement shall be approved only by authorized personnel. 

41. Fire Weather Systems: The Parties to this Agreement will cooperate in the gathering, processing, 

and use of fire weather data, including the purchase of compatible sensing systems and the joint use 

of computer software. The Parties to this Agreement will jointly evaluate and agree to any deletions 

or additions to the system. 

42. Aviation Operations: The Parties to this Agreement agree to cooperate in use of aviation resources 

to foster effective and efficient use of aircraft and personnel. (Refer to Standards, Clause 13.) 

43. Billing Procedures: (Refer to Reimbursable Costs, Appendix A) 

A. Suppression Billings

1. Federal Billings: Federal Agencies will not bill each other for fire suppression support. 

Federal Agencies will submit bills for their reimbursable costs to the State whenever Indiana 

is the protecting agency and a billing is appropriate. 

2. State Billings: When Indiana is the supporting agency and the fire is within the State of 

Indiana, the State will bill the protecting agency for reimbursable costs when a billing is 

appropriate. Anytime the State respond to a Federal Agency fire outside of Indiana, the 

State will bill all applicable costs to the USFS. Annual operating plans will include billing 

location information. 

3. Billing Estimates and Time Frames: Each Party will notify the respective administrative 

headquarters of any reimbursable claims which they intend to make and will strive to 

provide an estimate of the amount involved within 60 days in each reimbursable action. The 

final itemized claim should be submitted to the Party owed within 120 days of the 

suppression action. 

When mutually agreed, local fire suppression payments may be consolidated into a single 

statement at calendar year end, and the Party with the excess expenditures will be 

reimbursed by the other Party. 

4. Billing Content: Bills will contain, at a minimum, fire name(s), location(s), jurisdictional 

unit, and appropriate incident number; and will be supported by documentation, including 
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applicable cost share agreements. (See Exhibit B, Operating Plan Outline Guide, for 

suggested additional details.) Billings for fire suppression assistance will not include 

indirect costs. Federal Agencies will not bill each other for indirect costs for preparedness 

activities. 

5. Payment Due: Whenever this agreement provides for billing, the party receiving the bill has 

an obligation to pay in accordance with the terms of this agreement. All bills will be paid in 

accordance with the paying agency’s prompt payment procedures. 

6. Contested Billings: Written notice that a bill is contested will be mailed to the billing 

agency within 60 days of issuance of the final bill and will fully explain the contested items. 

 Contested items will be resolved not later than 60 days following receipt of the written 

notice. The uncontested portion of the bill will be paid and a new bill will be issued for the 

contested amount. 

B. Fee Basis Acquisition of Services: 

Annual Statewide or local operating plans and procurement documents will establish billing 

procedures for Fee Basis Protection Services. 

C. Non-Suppression (e.g., Fuels Treatment) Billings:

 

The Parties to this Agreement may bill for activities not related to fire suppression within their 

authorities. Billing arrangements for such activities will be documented on procurement 

documents or project plans (see Exhibit D) and indirect charges will be applied. Provisions 

described above also apply to these billings. Billings will outline services performed and 

include a copy of, or reference, the applicable operating plan. 

44. Third Party Cost Recovery: Agency authority to recover suppression costs and damages from 

parties causing a fire varies depending on contracts, agreements, permits or statutes. The Authorized 

Representatives of affected agencies will mutually agree as soon as possible after a fire on the 

strategy that will be used to recover suppression costs and damages from the party(ies) liable for 

such costs and damages. Such strategy may alter interagency billing procedures, timing and content 

as otherwise provided in this Agreement. Any agency may independently pursue civil actions 

against third parties to recover suppression costs and damages. 

 GENERAL PROVISIONS 

45. Personnel Policy: Employees of the Parties to this Agreement shall be subject to the personnel 

rules, laws and regulations of the employing agency. 

46. Mutual Sharing of Information: In accordance with applicable state and federal rules and 

regulations, Parties to this Agreement may furnish to each other, or otherwise make available upon 

request, such maps, documents, GIS data, instructions, records, and reports including, but not limited 

to, fire reports, employment records, and investigation reports as either Party considers necessary in 

connection with the Agreement. 

47. Initial Attack Cost Recovery: In those cases where costs have been recovered from a third party, 

reimbursement of initial attack, as well as suppression costs to the extent included in the recovery, 

will be made to the Party taking reciprocal action. 
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48. Accident Investigations: When an accident occurs involving the equipment or personnel of a 

supporting agency, the protecting agency shall immediately notify the jurisdictional and supporting 

agencies. As soon as practical, the protecting agency shall initiate an investigation of the accident. 

The investigation shall be conducted by a team made up of representatives from affected agencies, as 

appropriate. 

49. Purchaser, Contractor, Operator, Permittee, Etc., Fires: The protecting agency will notify the 

jurisdictional agency of any fire suspected to have been caused by a purchaser, contractor, operator 

or permittee, etc., of the jurisdictional agency as soon as it becomes aware of the situation. The 

protecting agency will be responsible for management of the fire under the provisions of this 

agreement. Agencies will meet to determine a cost recovery process as outlined in Clause 46. 

50. Non-Fire Emergencies: This Agreement provides for cooperation between the Parties to this 

Agreement in accordance with law for non-fire emergencies. 

51. Waiver: It is mutually agreed that the Parties to this Agreement shall each be responsible for their 

own losses arising out of the performance of this Agreement and each party hereby waives any claim 

against any other party for any loss, damage, personal injury, or death of the Party, or its employees 

or agents, occurring as a consequence of the performance of this Agreement; provided, this provision 

shall not relieve any Party from responsibility for claims of third parties for losses for which the 

Party is otherwise legally liable. 

52. Amendments: Amendments within the scope of this Agreement shall be made by mutual consent of 

the Parties, by the issuance of a written amendment, signed and dated by all Parties, prior to any 

changes being performed. No Party is obligated to fund any changes not properly approved in 

advance. 

53. Annual Review: If deemed necessary, prior to February 15, representatives of the State and Federal 

Agencies will meet and review matters of mutual concern. Operating plans, at all levels, will be 

reviewed annually. If necessary, operating plans will be revised. 

54. Duration of Agreement: The term of this Agreement shall commence on the date the last Party 

signs below and shall remain in effect for five (5) years from that date. A review of this Agreement 

will be conducted every five years for appropriateness and modified or renewed for a period of not 

more than five (5) years from the date the last Party signs the modification or renewal. 

Any Party shall have the right to terminate their participation under this Agreement by providing 

one-year advance written notice to the other Parties. 

55. Previous Agreements Canceled: This Agreement supersedes the following fire protection 

agreements: 

Cooperative Agreement between State of Indiana, Department of Natural Resources, and Forest 

Service, U.S. Department of Agriculture, 1986. 

Existing agreements subsidiary to those listed above remain in effect to the extent that they do not 

conflict with the provisions of this Agreement, but only until such time that all activities and 

conditions covered by those agreements can be incorporated into annual operating plans provided for 

under this Agreement, and not later than May 1, 1999. 
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SIGNATURES 

Signature block 
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MASTER COOPERATIVE FIRE PROTECTION AGREEMENT

EXHIBIT A

GLOSSARY OF TERMS

Agency Representative: An individual assigned to an incident with full authority to make decisions on 

all matters affecting that agency's participation at the incident.

Agency Administrator: Agency officials who are signatories to this Agreement, as follows: Forest 

Service, Forest Supervisor; National Park Service, Superintendent; Fish and Wildlife Service, Refuge 

Manager; State of Indiana, Indiana State Forester. 

Boundary Line Fire: Fire occurrences on lands of intermingled and/or adjoining protection 

responsibilities. 

Closest Forces Concept: See Section 25 of this Agreement. 

Escaped Fire: A fire which has exceeded, or is anticipated to exceed, preplanned initial action 

capabilities or the fire management direction. 

Fee Basis Acquisition of Services: For a given fee, one agency can become the protecting agency for 

the other. The fee (or cost) is the price for the work agreed to be performed on each acre of land. 

Fire Management Activities and/or Services: Any or all activities that relate to managing fire or fuels 

on lands under the jurisdiction of any Party to this Agreement. Activities include, but are not limited to: 

suppression, prescribed fire/fuels management, fire analysis/planning, rehabilitation, training, prevention, 

public affairs, and other beneficial efforts. 

Geographic Area Coordination Center (GACC): An organization which serves as the focal point 

within a large geographic area to provide the logistical support and intelligence needs, relative to ongoing 

and anticipated wildland fire and other emergency support activities. 

Indirect Cost: A fixed percentage rate as determined by the Indirect Cost Negotiation Agreement as in 

OMB Circular A-87. The rate will be specified in the Statewide Operating Plan. 

Initial Attack Zone: An identified area in which predetermined resources would normally be the initial 

resource to respond to an incident. 

Interagency: Involvement of two or more agencies party to this Agreement. 

Jurisdictional Agency: The agency which has overall land and resource management and/or protection 

responsibility as provided by federal or state law. Under no circumstances will a jurisdictional agency 

abdicate legal authorities. 

Offset: Exchange of fire management services in specific locations that is anticipated to be approximately 

equal value between agencies. 

Operating Plan - Statewide: A plan which will include all statewide considerations. This will be 

developed at the stateevel and approved by affected state and federal member agencies. 

Operating Plan - Local: A plan generated at a local level and authorized by Unit Administrators for 
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implementing theIndiana Wildland Fire Agreement in their respective areas of responsibilities. 

Parties to this Agreement: United States Department of Interior: National Park Service, Indiana Dunes 

N.L.; U.S. Fish and Wildlife Service, Big Oaks NWR; United States Department of Agriculture: Forest 

Service, Hoosier N.F.; State of Indiana DNR. 

Prescribed Fire: The planned use of fire to accomplish specific land management objectives. 

Preparedness: Activities in advance of fire occurrence to ensure effective suppression action. Includes 

training and placement of personnel, planning, procuring and maintaining equipment, development of fire 

defense improvements, and maintaining cooperative arrangements with other agencies. 

Prevention: Activities directed at reducing the number of person-caused fires, including public 

education, law enforcement, dissemination of information, and the reduction of hazards. 

Procurement Documents: Agency specific financial obligation documents. 

Protecting Agency: The agency providing fire management services to a given area pursuant to this 

Agreement. 

Protection: See Fire Management Activities and/or Services. 

Protection Area: That area which, by law or identified or authorized pursuant to the terms of this 

Agreement, is provided wildland fire protection by a state or federal agency. This may include land 

protected under exchange or payment or protection. 

Protection Boundaries: Mutually agreed upon boundaries delineated on maps, or otherwise described, 

identifying areas of direct fire protection responsibility. 

Protection Area Maps: Official maps which identify areas of direct fire protection responsibility for 

each agency. 

Reciprocal Fire Suppression: Reciprocal fire suppression is the act of helping the protecting agency, at 

no cost for the first 24 hours or by agreement, suppress wildfires. Reciprocity is attained by agreeing 

among one another the kind, location and numbers of firefighting resources which will automatically 

initial attack a wildfire, regardless of the protecting agency. The kind, locations, and numbers of 

resources which constitute reciprocity is defined in or though local operating plans. Reciprocity may be 

thought of as the implementing mechanism of the closest forces concept. 

Reimbursable Costs: All costs associated with operations and support ordered on a resource order or 

project plan by or for an incident or project within the provisions of this Agreement. Such costs may 

include, but are not limited to,the following: 

• Agency costs for transportation, salary, benefits, overtime, and per diem of individuals assigned to the 

incident or project. 

• Additional support dispatching, warehousing or transportation services requested through a resource 

order. 

• Cost of equipment in support of the incident, contract equipment costs and operating costs for agency 

equipment. 
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• Operating supplies for equipment assigned to the incident such as fuel, oil, and equipment repairs. 

• Aircraft, airport fees, and retardant costs. 

• Agency-owned equipment and supplies lost, damaged, or expended by the supporting agency. 

• Cost of reasonable and prudent supplies expended in support of the incident. 

• Charges from the States for state-controlled resources such as inmate crews, National Guard resources, 

and county and 

 local resources. 

• Indirect charges will be applied on joint state and federal non-suppression projects (see 45C). 

Supplemental Fire Suppression Agreement: A document prepared to distribute costs on a 

multi-jurisdictional incident (see Exhibit C). 

Supporting Agency: An agency providing assistance. 

Suppression: All the work of confining and extinguishing a fire beginning with its discovery through the 

conclusion of the incident. 

Unit Administrator: The individual assigned administrative responsibilities for an established 

organizational unit, such as Forest Supervisor for the Forest Service, Park Superintendent for the National 

Park Service, and Refuge Manager (Project Leader) for Fish and Wildlife Service, Fire Supervisor for 

State of Indiana Department of Natural Resources. 

Wildfire: Any fire occurring on wildland that is not meeting management objectives and thus requires a 

suppression response. 
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MASTER COOPERATIVE FIRE PROTECTION AGREEMENT 

EXHIBIT B

OPERATING PLAN OUTLINE GUIDE

PREAMBLE

This operating plan is prepared pursuant to the Master Cooperative Fire Protection Agreement signed and 

dated October 14, 1998. 

This operating plan supersedes: 

(List applicable local agreements and Operating Plans.) 

INTERAGENCY COOPERATION

Interagency Dispatch Center: Specify staffing, funding and level of participation agreed to. 

Interagency Resources: Identify funding and staffing of joint resources commensurate with each 

agency’s use. 

PREPAREDNESS

Protection Planning: Determine and document efficiencies from acquisition of protection services and 

reciprocal assistance. Include preparedness plan. 

Protection Areas and Boundaries: Identify areas (map and/or describe). 

Reciprocal Fire Assistance: Document reciprocal initial attack zones. Identify placement of crews, 

engines, air tankers, helicopters, fixed and aerial detection, regulated use, closures, and other joint fire 

control efforts. 

Acquisition of Services: Identify areas for reimbursable, offset or fee basis services. Method used to 

establish fee or rate of exchange. Terms and conditions. Work to be done by protecting agency and their 

responsibilities. 

Joint Projects and Project Plans: Document joint cooperative projects including objectives, role of 

each 

 agency, and financial plan. 

Fire Prevention Policies: Identify goals, activities, resources and cost sharing. 

Public Use Restrictions: Implementation procedures (see Northwest Operating Plan for guidelines). 

 

Burning Permit Procedures: 

Prescribed Fire and Fuels Management: Include notification procedures. 

Smoke Management: 
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OPERATIONS

Fire Notifications: Specify notification procedures. 

Boundary Line Fires: Specify notification procedures. 

Independent Action on Lands Protected by Another Agency: Discuss any special land management 

considerations that affect independent action initial attack. Describe areas, if any, where there are 

exceptions to this clause and state reasons. 

Land Management Considerations: Identify areas where there are special suppression considerations 

and describe. 

Delegation of Authority: Describe procedures (delegation of authority, etc.) that local Unit 

Administrators will use to inform ICs. 

Resource Advisors: 

USE AND REIMBURSEMENT OF INTERAGENCY FIRE RESOURCES

Training: Identify training needs, schedules, billing arrangements, agreed to sharing of resources. Refer 

to Clause 19 (Joint Projects and Project Plans) regarding needed project plans. 

Communication Systems: Identify specific radio frequencies, computer system access, data 

transmission lines, communication sites, and communications equipment shared between agencies. 

Fire Weather Systems: Specify maintenance, use and management, if any. 

Aviation Operations: Identify and document any local aviation agreements. 

Billing Procedures: 

Fire Suppression Billings: List billing forest, if different than identified in the Northwest Mobilization 

Guide. Provide as a minimum on each bill: 

The name and dates of the incident covered by the billing, total costs by cost centers. Use incident 

generated cost information (such as ICARS) or standard generated cost reports generated by the agency to 

support the billing whenever possible. 

Detailed costs by individual items will only be required when necessary to support a fire trespass billing 

or other billings to third parties. 

If available, also include a list of resource unit numbers or agency equivalent covered by the billing. 

Fee Basis Protection Billings: Identify billing procedures for fee basis. 

Specify indirect cost rate. 

Third Party Cost Recovery: Procedures for determining a cost recovery process will be in the Statewide 

Operating Plan. Investigation process is determined locally. 
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SIGNATURES

__________________________________ 

Agency Administrator 

__________________________________ 

Agency 

Date:______________________________ 

_________________________________ 

Agency Administrator 

__________________________________ 

Agency 

Date:_____________________________ 
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SUPPLEMENTAL FIRE SUPPRESSION AGREEMENT 

 EXHIBIT C
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Supplemental Project Plan 

 EXHIBIT D 

 SUPPLEMENTAL NUMBER __________ 

 TO MASTER COOPERATIVE FIRE PROTECTION AGREEMENT 

 

 PROJECT AND FINANCIAL PLAN

 

 I. INTRODUCTION

Brief description, where located, status of environment analysis, status compliance if applicable, 

design/specifications status. 

 II. SCOPE AND DURATION

The description of this project is to _______________________________________. It is 

anticipated that this project will begin ____________ and will end _______________. 

 III. PRINCIPAL CONTACTS

Principle contacts for each agency for the administration of the project are: 

Name 

Address 

Telephone 

FAX 

 IV. DETAILED PROJECT DESCRIPTION

A. Specific duties and tasks to be performed. Identify desired end results. 

B. Identify tools and equipment needed and who will supply them. 

C. Identify size of crew and who will be providing transportation 

D. Other 

 V. SUPERVISION AND TECHNICAL OVERSIGHT 

 VI. REIMBURSEMENT

Describe reimbursement and billing procedures. 

 VII. FINANCIAL PLAN
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List which agency is reimbursing the other and detail items to be reimbursed. Include: 

Salaries 

Travel 

Supplies 

Equipment Use 

Indirect Cost 

Project Total 

Management code to be charged _________. Reimbursement shall be made only for actual 

expenses incurred. Itemized documentation in support of all expenses is required. 

VIII. SIGNATURES 

__________________________ 

Agency Administrator 

__________________________ 

Agency 

 __________________________ 

 Date 

__________________________ 

Agency Administrator 

__________________________ 

Agency 

 __________________________ 

 Date 

 
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APPENDIX C

NORMAL UNIT STRENGTH EQUIPMENT

&

STATIONED OWNED EQUIPMENT

INVENTORY 

& 

EQUIPMENT NEEDS LIST 
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ITEM NUS

Shelters, Hard Hats, Head Lamps, 

Goggles, Packs, Line Gear, First Aid 

Kits, Water Bottles 

1 per qualified FFT2 individual plus 20%. 

Tents 1 per qualified FFT2 individual. 

Nomex Pants, Nomex Shirts, Gloves 1 per qualified FFT2 individual plus 20% of common 

sizes. 

Shovels, Pulaskis, McLeods, Flaps, 

Fire Rakes 

2 per qualified FFT2 individual plus 10% for each 

type of tool. An assortment of handtools, with a 

minimum of 3, will be maintained for each piece of 

equipment (ie. Bombadier, Autocar, Fire Trucks). 

Flight Helmets 2 per station. 

Back Pack Pumps 1 per 2 qualified FFT2 individual. 

Chain Saws 2 per station 

Portable Pumps 2 Floto Pumps per station. 

Foam 15 gallons per engine. 

Hose (per engine & portable pump) 1 1⁄2 “ - 900 feet 

1” - 900 feet 

Nozzles (1” & 1 1⁄2 “ total) 2 - portable pump 

4 - engine 

Plus 20% for total number of nozzles on engines, 

water and foam combined. 

Wyes, Tees, Wrenches, Relief 

Valves, Hose Clamps, etc. 

2 - portable pump 

3 - engine 

Plus 10% for each item. 

Adapters and Reduces 2 - portable pump 

3- engine 

Plus 10% for each item. 

* Equipment used to dig into the soil can not be use on the refuge due to the potential presence 

of UXO within the Refuge. 

All Refuge staff members with firefighting training will be issued appropriate personal protective 

equipment (PPE)
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STATIONED FIRE EQUIPMENT

Item Description Quantity

Engine Type 6 Engine-2003 F-550 1 

Engine Type 6 Engine-2006 F-550 1 

Vehicle 2001 F-250 4 X 4 pick-up truck 1 

Vehicle 2003 F-250 4 X 4 pick-up truck 1 

Vehicle 2003 F-350 4 X 4 crew cab 1 

ATV 2003 Honda Foreman ATV w/water tank 2 

ATV 2003 Polaris Ranger 6 X 6 w/slip-on 1 

Trailer ATV trailer (12ft, 14 ft & 16 ft) 3 

Trailer Covered Travel Trailer (14 ft) 1 

Equip.& Acces. Chain saw -Stihl 360 (22"- bar) 4 

Equip.& Acces Stihl pole saw (14"-bar) 1 

Equip.& Acces Terra Torch 1 

Equip.& Acces ATV Torch (old Style) 1 

Equip.& Acces Type 7 Slip-On Pumper 3 
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Future Firefighting Supplies/Equipment Needs 

Item/Description Quantity Justification

Fold-A-Tank 1 This tank will provide Refuge firefighting 

personnel a means to store water at designated 

sites for later use. 

Portable Pump 1 This pump will provide Refuge firefighting 

personnel a means to extract water from alternate 

sources (e.g., ponds, streams, or lakes) into 

pumpers or tanks during prescribed burns and/or 

fire suppression activities. 

4x4 ATV w/ Torch 1 These vehicles are necessary for the transport of 

firefighters and/or equipment through dense 

vegetation, serve as a means to ignite a fire with 

the use of a ATV drip torch, and act as another 

method to transport firefighters to designated sites 

on the Refuge during prescribed burns and/or fire 

suppression activities. 

Flat bed & Tool boxes for 

2001 F-250 

1 This platform will provide Refuge firefighting 

personnel an effective means to control and 

maintain prescribed burns and/or wildfire 

suppression. 
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APPENDIX D

 

STEP-UP PLAN 

FOR

BIG OAKS NATIONAL WILDLIFE REFUGE
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BIG OAKS NATIONAL WILDLIFE REFUGE STEP-UP PLAN

Staffing and 

Adjective 

Class

 Step-Up Action 

 

SC-1 

Low 

Normal Tour of Duty and operations. 

Normal number of qualified initial attack personnel on duty. 

Deputy Manager ensures that all firefighting equipment is serviced and available. 

SC-2 

Moderate 

Normal Tour of Duty and operations. 

Normal number of qualified initial attack personnel on duty. 

Deputy Manager ensures that all firefighting equipment is serviced and available. 

SC-3 

High 

Normal Tour of Duty and operations. 

Normal number of qualified initial attack personnel on duty. 

Deputy Manager ensures that all firefighting equipment is serviced and available. 

Schedule routine ground patrols of Refuge Units and make daily checks of all fire 

management units. 

SC-4 

Very High 

Normal Tour of Duty to include weekend coverage and possibly evening coverage to 

1800 hours. Intensified road patrols for prevention and detection purposes. 

Minimum of two initial attack personnel on duty or available on 60 minutes notice. 

Refuge heavy equipment readily available with operator available on 60 minutes 

notice. 

Curtail all prescribed burning operations, or within prescription, seek RFMC 

approval. 

SC-5 

Extreme 

Normal Tour of Duty to include weekend coverage and evening coverage to 1800 

hours. 

Minimum of two initial attack personnel on duty or available on 60 minutes notice. 

Refuge heavy equipment operators readily available, with extended hours beyond 

normal Tour of Duty as necessary. 

Follow Indiana State Fire Closure restrictions, or consider temporary closures of 

portions of Refuge to visitation. 

No prescribed burning will be implemented. 
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APPENDIX E 

WILDLAND FIRE SITUATION ANALYSIS 

(WFSA) 

FOR 

BIG OAKS NATIONAL WILDLIFE REFUGE
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WILDLAND FIRE SITUATION ANALYSIS (WFSA) 

INTRODUCTION 

The WFSA is a decision process that employs a systematic and reasonable approach to 

determine the most appropriate strategy for a particular situation. Reasonable suppression 

alternatives are identified, analyzed and evaluated, and are consistent with the expected 

probability of success/consequences of failure. The agency administrator (Refuge Manager or 

acting Refuge Manager) shall approve the WFSA and any revisions. Evaluation criteria include 

anticipated suppression costs, resource impacts, and environmental, social, and political 

considerations. The evaluation of alternatives must clearly identify the point at which the failure 

of the alternative is imminent. This becomes the triggering mechanism for re-evaluation of the 

WFSA. 

WFSA GENERAL INSTRUCTIONS 

• FIRE SITUATION - This portion of the analysis is intended to provide basic information 

on the fire, including identification of fire, dates and times of the analysis, and the 

location of the fire. 

o fuels: Type. Describe the fuels in the area in terms which will be useful for 

analysis purposes, i.e., mature sagebrush, young ponderosa pine, grass, etc. 

o Fire Behavior: Current. Briefly discuss the fire weather in terms of temperatures, 

wind and daily patterns. Describe the fire in non-technical terms, such as 

creeping, spotting, crowning, etc. Discuss the flame lengths, rates of spread, etc. 

Predicted. Describe what the future course of the fire will be based on the 

predicted weather patterns, fuels and topography in the presence of the fire, and 

any other pertinent factors. 

• EVALUATION CRITERIA - Specify criteria which must or should be considered in the 

development of alternatives. Economic criteria might include closure of all or portions of 

the refuge, thus impacting concessionaire, or impacts to transportation or 

communications system. Environmental criteria might also include management 

objectives, air shed, water quality, etc. Social or external criteria would include any local 

attitudes toward fire or smoke that might affect decisions on the fire, safety, etc. Other 

criteria might include the legal or administrative constraints which would have to be 

considered in the analysis of the fire situation, such as the need to keep the fire off other 

agency lands, etc. 

• ALTERNATIVES - Develop alternative plans to control the fire. These will be the results 

you expect to achieve. All alternatives may have the same general plan, but may have 

different specific plans. Or there may be different general plans with similar specific 

plans. A map must be prepared showing each alternative. The map should be based upon 

the "calculation of probabilities" and include other relevant information. A "no 

suppression "alternative is not acceptable. An alternative which does not meet all "must" 

criteria is not acceptable. 
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 Strategy. Briefly state the alternative strategies for management of the fire. 

Usegeographic names, locations, etc. Roughly designate each strategy on a 

map. 

 Allow fire to play a natural role 

 Aggressive Attack 

 Sustained Attack 

 Other strategies as appropriate 

o Tactics. Briefly discuss tactical considerations, including general estimates of 

suppression forces required to accomplish the strategic plan. 

 Direct attack 

 Parallel attack 

 Indirect attack 

 Containment 

 Surveillance 

 Other tactics as appropriate 

o Resources: Include equipment, aircraft, and personnel resources. 

o Estimated Probability of Success. Base estimates for 0-100% for each alternative 

strategy. 

o Estimated Date of Control. Estimates for each alternative should be made based 

on predicted weather behavior factor, barriers, fuels, etc., and the effects of 

suppression efforts. 

• ANALYSIS OF EFFECT - The analysis is based on the best estimates of the refuge, 

resource and fire managers. Fire effects may be negative, cause no change, or may be 

positive. Employ those evaluations most useful to the specific situation. Some examples: 

1) a system which employs a "-" for negative effect, a "0" for no change, or a "+" for 

positive effect; 2) a system which uses a numeric factor for importance of the 

consideration (soils, watershed, political, etc.) and assigns values (such as -1 to +1, -100 

to +100, etc.) to each consideration, then arrives at a weighted average. It may be that 

actual dollar values for resources are available. If so, these would be an especially 

valuable tool. Use those methods most useful to managers. Cost plus loss is the sum of 

losses from market elements, non-market elements, social elements, and suppression 

costs. 

• EVALUATION - 

o Economic. Evaluate any economic criteria against each alternative. Include 

improvements, visitor use, concessions, fee enhancement, etc. 

o Environmental: 

o Soils. Identify any soil problems which may occur as a result of the fire (water 

repellency information, etc.). 

o Water/Watershed. Indicate decreases in water quality due to vegetation loss. 

Consider the potential for increased water yield as a result of vegetation losses. 

o Visual/Recreation. Loss of alternative vegetation, short-term blackened and 

charred 

o landscape. Consider potential for more attractive views with introduction of 

vegetative mosaics. 
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o Air Quality. Consider the problem of smoke in populated areas or during scenic 

periods of time. Analyze the vicinity of the fire for those areas where smoke could 

cause a hazard by obscuring highway or airport visibility. Off-site as well as onsite effects must be considered. 

o Wilderness. Values may include fire as a natural process. Does a wilderness or 

wilderness study area have a fire management plan allowing a fire to burn under 

o certain conditions? Do managers want fire in the wilderness? Must fire be kept 

out of the wilderness to preserve wilderness characteristics? 

o Wildlife. Consider the damage done to wildlife due to loss of critical habitat or 

loss of cover. Positive benefits may include vegetation diversity, increased edges, 

and more vegetation available for wildlife because of sprouting in burning brush. 

o Fuel Reduction. If a serious hazard has built up and is identified, it may be 

advisable to allow the fire to remove the fuel. 

o Social: 

o Safety. No alternatives will be selected which endanger the lives of the public or 

of firefighters. Any fire or portion of a fire endangering human life will receive 

immediate, aggressive, and sustained attack. 

o Property and Improvements. Any fire or portion of a fire endangering property 

will receive immediate and sustained attack, consistent with public and firefighter 

safety. 

o Political Consideration. Designate any concerns other public agencies may have 

in regard to one or all of the suppression strategies, or specify areas of specific 

concern to the other agencies. This could include such things as use of equipment 

in and around refuge boundaries, areas of cultural resources, etc. 

o Other: Add any additional factors which may be unique to the area or situation, 

such as rare and endangered plants or animals, or by other considerations not 

previously mentioned. 

• DECISION TREE - The Decision Tree is a discussion and justification as to why 

preferred alternative was selected based on the evaluation criteria. 

3.4.4. PRE-ATTACK WILDLAND FIRE SITUATION ANALYSIS 

The pre-attack WFSA is an WFSA that is completed by the refuge staff during the pre-attack 

planning process. It translates refuge fire management objectives into a concise action 

document which determines initial suppression strategy. To ensure that all important decision 

criteria are adequately addressed during the initial stages of a fire emergency, selective use of 

a pre-attack WFSA is recommended. Although this process applies in any refuge with 

identified suppression zones, it is most useful in those refuges, or portions of refuges, with 

only one viable suppression alternative. The pre-attack WFSA will serve as the framework 

for a WFSA if the fire exceeds the parameters of the selected alternative. 
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This page is completed by the Agency Administrator(s). 

Section I, WFSA Information Page

A. Jurisdiction(s): Assign the agency or agencies that have or could have fire 

protection responsibility, e.g., USFWS, BLM, etc. 

B. Geographic Area: Assign the recognized "Geographic Coordination Area" the 

fire is located in, e.g., Northwest, Northern Rockies, etc. 

C. Unit(s): Designate the local administrative unit(s), e.g., Hart Mountain Refuge 

Area, Flathead Indian Reservation, etc. 

D. WFSA #: Identify the number assigned to the most recent WFSA for this fire. 

E. Fire Name: Self-explanatory. 

F. Incident #: Identify the incident number assigned to the fire. 

G. Accounting Code: Insert the local unit's accounting code. 

H. Date/Time Prepared: Self-explanatory. 

I. Attachments: Check here to designate items used to complete the WFSA. 

"Other could include data or models used in the development of the WFSA. Briefly 

describe the "other" items used. 
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I. Wildland Fire Situation Analysis

To be completed by the Agency Administrator(s)

A. Jurisdiction(s) B. Geographic Area

C. Unit(s) D. WFSA #

E. Fire Name F. Incident #

G. Accounting Code:

H. Date/Time Prepared __________________________@_______________

I. Attachments

- Complexity Matrix/Analysis * _______

- Risk Assessment/Analysis * _______

 Probability of Success * _______

 Consequences of Failure * _______

- Maps * _______

- Decision Tree ** _______

- Fire Behavior Projections * _______

- Calculations of Resource Requirements * _______

- Other (specify) 

* Required 

** Required by FWS

_______

This page is completed by the Agency Administrator(s). 
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Section II. Objectives and Constraints 

A. Objectives: Specify objectives that must be considered in the development of 

alternatives. Safety objectives for firefighter, aviation, and public must receive the 

highest priority. Suppression objectives must relate to resource management 

objectives in the unit resource management plan. 

Economic objectives could include closure of all or portions of an area, thus 

impacting the public, or impacts to transportation, communication, and resource 

values. 

Environmental objectives could include management objectives for airshed, water 

quality, wildlife, etc. 

Social objectives could include any local attitudes toward fire or smoke that might 

affect decisions on the fire. 

Other objectives might include legal or administrative constraints which would 

have to be considered in the analysis of the fire situation, such as the need to 

keep the fire off other agency lands, etc. 

B. Constraints: List constraints on wildland fire action. These could include 

constraints to designated wilderness, wilderness study areas, environmentally or 

culturally sensitive areas, irreparable damage to resources or smoke 

management/air quality concerns. Economic constraints, such as public and 

agency cost, could be considered here. 
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II. Objectives and Constraints

To be Completed by the Agency Administrator(s)

A. Objectives (Must be specific and measurable) 

 1. Safety 

 - Public 

 - Firefighter 

 2. Economic 

 3. Environmental 

 4. Social 

 5. Other 

B. Constraints 

This page is completed by the Fire Manager and/or Incident Commander.
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Section III. Alternatives

A. Wildland Fire Management Strategy: Briefly describe the general wildland fire 

strategies for each alternative. Alternatives must meet resource management plan 

objectives. 

B. Narrative: Briefly describe each alternative with geographic names, locations, 

etc., that would be used when implementing a wildland fire strategy. For example: 

 "Contain within the Starvation Meadows' watershed by the first burning period." 

C. Resources Needed: Resources described must be reasonable to accomplish the 

tasks described in Section III.B. It is critical to also look at the reality of the 

availability of these needed resources. 

D. Final Fire Size: Estimated final fire size for each alternative at time of 

containment. 

E. Estimated Contain/Control Date: Estimates of each alternative shall be made 

based on predicted weather, fire behavior, resource availability, and the effects of 

suppression efforts. 

F. Cost: Estimate all incident costs for each alternative. Consider mop-up, 

rehabilitation, and other costs as necessary. 

G. Risk Assessment - Probability of Success/Consequences of Failure: Describe 

probability as a percentage and list associated consequences for success and 

failure. Develop this information from models, practical experience, or other 

acceptable means. Consequences described will include fire size, days to 

contain, days to control, costs, and other information such as park closures and 

effect on critical habitat. Include fire behavior and long-term fire weather forecasts 

to derive this information. 

H. Complexity: Assign the complexity rating calculated in "Fire Complexity 

Analysis" for each alternative, e.g., Type II, Type I. 

I. A map for each alternative should be prepared. The map will be based on the 

"Probability of Success/Consequences of Failure" and include other relative 

information. 
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III. Alternatives (To be completed by FMO / IC)

A B C

A. Wildland Fire 

 Strategy

 

B. Narrative 

C. Resources 

 needed

 

 Handcrews 

 Engines 

 Dozers 

 Airtankers 

 Helicopters 

D. Final Size 

E. Est. Contain/ 

 Control Date

F. Costs

G. Risk 

 Assessment 

 - Probability of 

 success 

 

 - Consequence 

 of failure 

_______________ 

_______________

________________ 

________________

________________ 

________________ 

H. Complexity 

I. Attach maps for each alternative

This page is completed by the Agency Administrator(s), FMO and/or Incident 

Commander. 
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Section IV. Evaluation of Alternatives

A. Evaluation Process: Conduct an analysis for each element of each objective and 

each alternative. Objectives shall match those identified in Section II.A. Use the 

best estimates available and quantify whenever possible. Provide ratings for each 

alternative and corresponding objective element. Fire effects may be negative, 

cause no change, or may be positive. Examples are: 1) a system which employs 

a "-" for negative effect, a "0" for no change, and a "+" for positive effect; 2) a 

system which uses a numeric factor for importance of the consideration (soils, 

watershed, political, etc.) and assigns values (such as -1 to +1, - 100 to +100, etc.) 

to each consideration, then arrives at a weighted average. If you have the ability 

to estimate dollar amounts for natural resource and cultural values, this data is 

preferred. Use those methods which are most useful to managers and most 

appropriate for the situation and agency. To be able to evaluate positive fire 

effects, the area must be included in the resource management plan and 

consistent with prescriptions and objectives of the fire management plan. 

Sum of Economic Values: Calculate for each element the net effect of the rating 

system used for each alternative. This could include the balance of: 

pluses (+) and minuses (-), numerical rating (-3 and +3), or natural and cultural 

resource values in dollar amounts. (Again, resource benefits may be used as part 

of the analysis process when the wildland fire is within a prescription consistent 

with approved Fire Management Plans and in support of the unit's Resource 

Management Plan.) 
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IV. Evaluation of Alternatives

To be Completed by the Agency Administrator(s) and Fire Manager / Incident Commander

A. Evaluation Process A B C

 Safety 

 Firefighter 

 Aviation 

 Public

 

Sum of Safety Values 

 Economic

 Forage

 Improvements 

 Recreation 

 Timber 

 Water 

 Wilderness 

 Wildlife 

 Other (specify) 

 

 

Sum of Economic 

Values

 

 Environmental

 Air 

 Visual 

 Fuels 

 T & E Species 

 Other (specify)

 

Sum of Environmental 

Values

 
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 Social

 Employment 

 Public Concern 

 Cultural 

 Other (Specify)

 

Sum of Social Values 

 Other

This page is completed by the Agency Administrator(s) and Fire Manager and/or 

Incident Commander. 

Section V. Analysis Summary

A. Compliance with Objectives: Prepare narratives that summarize each 

alternative's effectiveness in meeting each objective. Alternatives that do not 

comply with objectives are not acceptable. Narrative could be based on 

effectiveness and efficiency. For example: "most effective and least efficient," 

"least effective and most efficient," or "effective and efficient." Or answers could 

be based on a two-tiered rating system such as "complies with objective" and "fully 

complies with or exceeds objective." Use a system that best fits the manager's 

needs. 

B. Pertinent Data: Data for this Section has already been presented, and is 

duplicated here to help the Agency Administrator(s) confirm their selection of an 

alternative. Final Fire Size is displayed in Section III.D. Complexity is calculated 

in the attachments and displayed in Section III.H. Costs are displayed on page 4. 

Probability of Success/Consequences of Failure is calculated in the attachments 

and displayed in Section III.G. 

C. External and Internal Influences: Assign information and data occurring at the 

time the WFSA is signed. Identify the Preparedness Index (1 through 5) for the 

National and Geographic levels. If available, indicate the Incident Priority 

assigned by the MAC Group. Designate the Resource Availability status. This 

information is available at the Geographic Coordination Center, and is needed to 

select a viable alternative. Designate "yes," indicating an up-to-date weather 

forecast has been provided to, and used by, the Agency Administrator(s) to 

evaluate each alternative. Assign information to the "Other" category as needed 

by the Agency Administrator(s). 
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Section IV. Decision 

Identify the alternative selected. Must have clear and concise rationale for the decision, 

and a signature with date and time. Agency Administrator(s) is mandatory. 

V. Analysis Summary

To be Completed by the Agency Administrator(s) and Fire Manager / Incident Commander

Alternatives A B C

A. Compliance with 

 Objectives

 Safety 

 Economic 

 Environmental 

 Social 

 Other 

 

 

B. Pertinent Data

 Final Fire Size 

 Complexity 

 Suppression Cost 

 Resource Values 

 Probability of 

Success 

 Consequences of 

Failure

 
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C. External / Internal Influences 

 National & Geographic 

 Preparedness Level 

____________________________________________________________ 

 Incident Priority 

____________________________________________________________ 

 Resource Availability 

____________________________________________________________ 

 Weather Forecast 

 (long-range) 

____________________________________________________________ 

 Fire Behavior Projections 

____________________________________________________________ 

VI. Decision

The Selected Alternative is: 

__________________________________________________________ 

Rationale: 

____________________________________ _____________________ 

 Agency Administrator's Signature 

Date/Time 

This Section is completed by the Agency Administrator(s) or designate. 

Section VII. Daily Review 

The date, time, and signature of reviewing officials are reported in each column for each 

day of the incident. The status of Preparedness Level, Incident Priority, Resource 

Availability, Weather Forecast, and WFSA validity is completed for each day reviewed. 

Ratings for the Preparedness Level, Incident Priority, Resource Availability, Fire 

Behavior, and Weather Forecast are addressed in Section V.C. Assign a "yes" under 

"WFSA Valid" to continue use of this WFSA. A "no" indicates this WFSA is no longer 

valid and another WFSA must be prepared or the original revised. 
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Section VIII. Final Review 

This Section is completed by the Agency Administrator(s). A signature, date, and time 

are provided once all conditions of the WFSA are met. 

VIII. Daily Review

To be completed by the Agency Administrator(s) or Designate

Selected to be reviewed daily to determine if still valid until containment or control

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If WFSA is no longer valid, a new WFSA will be completed!

VIII. Objectives Final Review

The elements of the selected alternative were met on: __________________________ 

 _________ 

 Date 

 Time 

By:___________________________________________________________________ 

 (Agency Administrator(s)

A GUIDE FOR ASSESSING FIRE COMPLEXITY

The following questions are presented as a guide to assist the Agency Administrator(s) 

and staff in analyzing the complexity or predicted complexity of a wildland fire situation. 

Because of the time required to assemble or move an Incident Management Team to 

wildland fire, this checklist should be completed when a wildland fire escapes initial 

attack and be kept as a part of the fire records. This document is prepared concurrently 

with the preparation of (and attached to) a new or revised Wildland Fire Situation 

Analysis. It must be emphasized this analysis should, where possible, be based on 

predictions to allow adequate time for assembling and transporting the ordered 

resources. 

Use of the Guide:

1. Analyze each element and check the response "yes" or "no." 

2. If positive responses exceed, or are equal to, negative responses within any 

primary factor (A through G), the primary factor should be considered as a positive 

response. 

3. If any three of the primary factors (A through G) are positive responses, this 

indicates the fire situation is, or is predicted to be, Type I. 

4. Factor H should be considered after all the above steps. If more than two of 

these items are answered "yes," and three or more of the other primary factors are 

positive responses, a Type I team should be considered. If the composites of H 

are negative, and there are fewer than three positive responses in the primary 

factors (A-G), a Type II team should be considered. If the answers to all questions 

in H are negative, it may be advisable to allow the existing overhead to continue 

action on the fire.
DEPARTMENT OF THE INTERIOR FIRE MANAGEMENT PLAN 

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GLOSSARY OF TERMS 

Potential for blow-up conditions - Any combination of fuels, weather, and topography 

excessively endangering personnel. 

Rate or endangered species - Threat to habitat of such species or, in the case of 

flora, threat to the species itself. 

Smoke management - Any situation which creates a significant public response, such 

as smoke in a metropolitan area or visual pollution in high-use scenic areas. 

Extended exposure to unusually hazardous line conditions - Extended burnout or 

backfire situations, rock slide, cliffs, extremely steep terrain, abnormal fuel situation 

such as frost killed foliage, etc. 

Disputed fire management responsibility - Any wildland fire where responsibility for 

management is not agreed upon due to lack of agreements or different interpretations, 

etc. 

Disputed fire policy - Differing fire policies between suppression agencies when the 

fire involves multiple ownership is an example. 

Pre-existing controversies - These may or may not be fire management related. Any 

controversy drawing public attention to an area may present unusual problems to the 

fire overhead and local management. 

Have overhead overextended themselves mentally or physically - This is a critical 

item that requires judgment by the responsible agency. It is difficult to write guidelines 

for this judgment because of the wide differences between individuals. If, however, the 

Agency Administrator feels the existing overhead cannot continue to function efficiently 

and take safe and aggressive action due to mental or physical reasons, assistance is 

mandatory.
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FIRE COMPLEXITY ANALYSIS 

A. FIRE BEHAVIOR: Observed or Predicted 

Yes/No 

 1. Burning Index (from on-site measurement of weather conditions). ___ 

Predicted to be above the 90% level using the major fuel model in 

which the fire is burning. 

 2. Potential exists for "blowup" conditions (fuel moisture, winds, etc.) ___ 

 3. Crowning, profuse or long-range spotting. ___ 

 4. Weather forecast indicating no significant relief or worsening 

 conditions. ___ 

 Total ___ 

B. RESOURCES COMMITTED 

 1. 200 or more personnel assigned. ___ 

 2. Three or more divisions. ___ 

 3. Wide variety of special support personnel. ___ 

 4. Substantial air operation which is not properly staffed. ___ 

 5. Majority of initial attack resources committed. ___ 

 Total ___ 

C. RESOURCES THREATENED 

 1. Urban interface. ___ 

 2. Developments and facilities. ___ 

 3. Restricted, threatened or endangered species habitat. ___ 

 4. Cultural sites. ___ 

 5. Unique natural resources, special designation zones or 

 wilderness. ___ 

 6. Other special resources. ___ 

 Total ___ 

D. SAFETY 

 1. Unusually hazardous fire line conditions. ___ 

 2. Serious accidents or facilities. ___ 

 3. Threat to safety of visitors from fire and related operations. ___ 

 4. Restricted and/or closures in effect or being considered. ___ 

 5. No night operations in place for safety reasons. ___ 

 Total ___ 
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E. OWNERSHIP 

Yes/No

 1. Fire burning or threatening more than one jurisdiction. ___ 

 2. Potential for claims (damages). ___ 

 3. Conflicting management objectives. ___ 

 4. Disputes over fire management responsibility. ___ 

 5. Potential for unified command. ___ 

 Total ___ 

F. EXTERNAL INFLUENCES 

 1. Controversial wildland fire management policy. ___ 

 2. Pre-existing controversies/relationships. ___ 

 3. Sensitive media relationships. ___ 

 4. Smoke management problems. ___ 

 5. Sensitive political interests. ___ 

 6. Other external influences. ___ 

 Total ___ 

G. CHANGE IN STRATEGY 

 1. Change in strategy to control from confine or contain. ___ 

 2. Large amount of unburned fuel within planned perimeter. ___ 

 3. WFSA invalid or requires updating. ___ 

 Total ___ 

H. EXISTING OVERHEAD 

 1. Worked two operational periods without achieving initial objectives. ___ 

 2. Existing management organization ineffective. ___ 

 3. IMT overextended themselves mentally and/or physically. ___ 

 4. Incident action plans, briefings, etc., missing or poorly prepared. ___ 

 Total ___ 

Signature___________________________________ 

Date______________________ Time___________
DEPARTMENT OF THE INTERIOR FIRE MANAGEMENT PLAN 

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APPENDIX F

DELEGATION OF AUTHORITY FOR FIRES

AT

BIG OAKS NATIONAL WILDLIFE REFUGE
DEPARTMENT OF THE INTERIOR FIRE MANAGEMENT PLAN 

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APPENDIX F

Delegation of Authority

_______________________________is assigned as Area/Incident Commander on the 

_________________________________ Fire. You have full responsibility for managing the 

fire suppression activities within the framework of law, Agency policy, and direction within the 

framework of law, Agency policy, and direction provided in the Overhead Briefing and/or 

Escaped Fire Situation Analysis. 

Your primary responsibility is to organize and direct your assigned and ordered resources for 

efficient and effective suppression of the fire. You are accountable to the 

___________________ or his designated representative listed below. Financial limitations will 

be consistent with the best approach to the values at risk. 

Specific direction for the __________________________________ Fire covering management 

and environmental concerns are as follows: 

________________________________________, will represent me on any occasion that I am 

not immediately available. This authority is effective as of 

______________________________. 

______________________________________ __________________________________ 

 Date/Time 
DEPARTMENT OF THE INTERIOR FIRE MANAGEMENT PLAN 

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APPENDIX G 

APPENDIX G

INDIVIDUAL FIRE REPORT 

AT

BIG OAKS NATIONAL WILDLIFE REFUGE
DEPARTMENT OF THE INTERIOR FIRE MANAGEMENT PLAN 

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APPENDIX G

U.S FISH AND WILDLIFE SERVICE 

INDIVIDUAL FIRE REPORT INSTRUCTIONS 

(DI-1202) 
DEPARTMENT OF THE INTERIOR FIRE MANAGEMENT PLAN 

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JUNE 1997 

UNITED STATES DEPARTMENT OF THE INTERIOR FISH 

AND WilDLIFE SERVICE INDIVIDUAL FIRE REPORT 

INSTRUCTIONS FOR USE WITH DI-1202 

GENERAL DI-1202INSTRUCTIONS 

1. The fire reporting process will be done by data entry into the computer. A fire 

number will automatically be assigned to the fire. 

2. Report and record each individual fire on a separate form. 

3. DO NOT ENTER ZEROS to the left of significant numbers except where 

indicated as part of the code entry. 

4. Each Fire Report is to be entered into the FMIS computer system within 20 days 

after the fire has been declared out.

5. An original hard copy needs to be kept on file because FMIS cannot capture the 

map and signature at this time. 

6. A narrative for each fire will be included in the Remarks section. Other items that 

require clarification are also reported in this section. 

7. DO NOT use more digits than are indicated by dashes on the form. 

8. Enter only the code numbers, except as specified in the Specific Instructions. 

9. Enter the MANDATORY data for the following type fires: 

FIRE TYPE 1 (SUPPRESSED FIRE) 

Item 

1 

2-3d 

4a-b 

5 

6 

*8a 

*8b 

*8c 

*8d 

*8d 

9a 

9b 

9c 

Description 

Status Code 

Header 

Fire Type 

Cause 

People 

State 

Owner 

Vegetative Type 

Acres 

Acres 

Fire Name 

Area Name 

Latitude/Longitude 

Item Description 

9e Cost Code 

9f Ownership at Origin 

9g Fiscal Year 

10a Discovery: date/time/type/acres 

10b Initial Attack: date/time/type/amt/acres 

10c Control: date/time/acres 

11 a Topography 

11 b Aspect 

11c Slope 

11 d Elevation 

11 g Fire Behavior 

 * 8a-8d Repeats (up to 8 of State.

 Owner. Vegetative Type. Acres) as needed. 

All other items are optional.
DEPARTMENT OF THE INTERIOR FIRE MANAGEMENT PLAN 

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Item 

1 

2-3d 

4a-b 

5 

*8a 

*8b 

*8c 

*8d 

9a 

9c 

9e 

9f 

9g 

Item 

1 

2-3d 

4a-b 

8a 

8b 

Item 

1 

2-3d 

4a-b 

*8a 

*8b 

*8c 

*8d 

9a 

9b 

9c 

9f 

9g 

Description 

Status Code 

Header 

Fire Type 

Cause (if known) 

State 

Owner 

Vegetative Type 

Acres 

Fire Name 

Latitude/Longitude 

Cost Code 

Ownership at Origin 

Fiscal Year 

APPENDIX G 

FIRE TYPE 2 (NATURAL OUTS) 

Item

10a 

10d 

11a 

11b 

11c 

11d 

Description 

Discovery: date/time/type/acres 

Declared Out: date 

Topography 

Aspect 

Slope 

Elevation 

*8a-8d Repeats (up to 8 of State.

Owner. Vegetative Type. Acres) as needed 

All other items are optional. 

FIRE TYPE 3 (SUPPORT ACTIONS) 

Description 

Status Code 

Header 

Fire Type: (Must always be 37) 

State 

Owner 

Item Description 

9a Fire Name 

9e Cost Code 

9f Fiscal Year 

9h Fiscal Data 

10a Discovery: date 

All other items are optional. 

Description 

Status Code 

Header 

Fire Type 

State 

Owner 

 Vegetative Type 

Acres 

Fire Name 

Area Name 

Latitude/Longitude 

Ownership 

Fiscal Year 

FIRE TYPE 48 (PLANNED IGNITION) 

Item Description 

9h Agency Fiscal Data 

10a Discovery: date/time 

10c Controlled: acres 

10d Declared Out: date 

11 a-d Site Data 

11e NFDRS Station (if available) 

11f MSGC (if 11 e is completed) 

11h BI (if 11 e is completed) 

13c Plot Objective 

13d Firing Type 

13e Cost! Acre 

All other items are optional. 

*8a-8d may be repeated up to 8 times if needed.
DEPARTMENT OF THE INTERIOR FIRE MANAGEMENT PLAN 

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Item 

1 

2-3d 

4a-b 

*8a 

*8b 

*8 

*8d 

9a 

9b 

9c . 

9f 

 9g 

9h 

APPENDIX G 

FIRE TYPE 49 (UNPLANNED IGNITION) 

Description 

Status Code 

Header 

Fire Type 

State 

Owner 

Vegetative Type 

Acres 

Fire Name 

Area Name 

Latitude/Longitude 

Ownership 

Fiscal Year 

Agency Fiscal Data 

Item Description

10a Discovery: date/time 

10c Controlled: acres 

10d Declared Out: date 

11 a-d Site Data 

11e NFDRS Station (if available) 

11f MSGC (if 11 e is completed) 

11h BI (if 11 e is completed) 

13c Plot Objective 

13d OMIT 

13e Cost! Acre 

All other items are optional. 

*8a-8d may be repeated up to 8 times if needed. Only the first set is 

mandatory . 

FIRE TYPE 5 (ACTION TYPE FALSE ALARMS) 

Item Description 

1 Status Code 

2-3d Header 

4a-b Fire Type 

8a State 

8b Owner 

9a Fire Name 

9e Cost Code 

9g Fiscal Year 

9h Agency Fiscal Data 

Item

10a 

10b

Description

Discovery: data/time/type/acres 

Initial Attack: type/amount 

DO NOT PREPARE A REPORT FOR A NO 

ACTION TYPE FALSE ALARM I!! 
DEPARTMENT OF THE INTERIOR FIRE MANAGEMENT PLAN 

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APPENDIX G 

SPECIFIC INSTRUCTIONS 

PART I - WILDFIRES 

1. REPORT STATUS CODE - (Automatic Fill) 

2. REPORTING AGENCY - This refers to the Government agency submitting the 

report. (Automatic fill) 

 

3. a. UNIT - Enter first two digits of organization code (Automatic fill). 

b. SUB-UNIT - Enter last three digits of organization code (Automatic fill). 

 

 c. CALENDAR YEAR - (Automatic fill) 

d. FIRE NUMBER - Fire number will automatically be assigned by the 

computer upon data entry. The entire report does not need to be entered 

into the computer to receive a fire number. The header (items 1 - 3c) is all 

that is required. The remainder of the report will need to be completed 

during and at the conclusion of the fire. 

4. FIRETYPE 

a. Fire Type - enter one of the following codes: 

(1) For all Fires Suppressed - Action taken by the reporting agency's 

employees, regardless of land ownership, or by contractors, or 

operators on reporting agency's land. 

(2) Natural Outs - Fires discovered after they have been extinguished by 

natural causes. NO SUPPRESSION ACTION TOOK PLACE. 

(3) Support Actions - Action taken at the request of a cooperator on a 

fire which is not threatening FWS land and no formal agreement 

exists which would require a FWS response. Does not include 

initial attack under established mutual aid agreements.

(Protection Type 7). 

(4) Prescribed Fires - If the fire escaped and is declared a wildfire, the 

narrative for the prescribed fire should indicate such and reference the 

new assigned number for the wildfire. A new DI-1202 will be 

started for the newly declared wildfire. The cause and narrative 

should indicate that the wildfire resulted from an escaped 

prescribed fire. 
DEPARTMENT OF THE INTERIOR FIRE MANAGEMENT PLAN 

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(5) False Alarms - For all reported fires on which some type of 

response was initiated (e.g., patrol plane or crew dispatched, etc.) 

but no suppression action took place, either because the fire was 

not found or it was not within reporting agency's jurisdiction. 
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APPENDIX G 

b. PROTECTION TYPE - enter one of the following codes: 

(1) For reporting agency land under reporting agency protection. 

(2) For reporting agency land protected by another Federal agency under a 

Memorandum of Understanding or cooperative agreements. 

(3) For reporting agency land protected by another non-Federal 

 agency under a cooperative agreement or contract. 

(4) This is NOT a valid code for FWS. 

(5) For Other lands not under a Memorandum of Understanding, cooperative 

agreement or contract but where action is taken by the reporting agency to 

prevent fire spread to reporting agency lands. 

(6) For Other lands protected by the reporting agency under a Memorandum 

of Understanding, cooperative agreement or contract. 

(7) Support actions by the reporting agency under Fire Type 3. 

(8) Prescribed Fire – Planned Ignition. 

(9) Prescribed Fire – Unplanned Ignition. 
DEPARTMENT OF THE INTERIOR FIRE MANAGEMENT PLAN 

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APPENDIX G 

A

5. CAUSE

Specific Cause (2nd and 3rd digit of Cause column) 

 Lightning ....................................................01 

Aircraft. . .. .. . .. . . .. .. .. . .. . . . . . . .. .. . .. 02

 Burning Vehicle..........................................03 

 Exhaust......................................................04 

Exhaust - Other ......................................05 Equipment/Exhaust 

Logging Line ............................................06 Equipment/Other 

 Brakes........................................................07 

 Cookinq / Warminq Fire .............................08 

Warming Fire............................................09 combined with cooking 

 Smoking.....................................................10 

 Trash Burning ............................................11 

 Burning Dump............................................12 

 Field Burning..............................................13 

 Land Clearing ............................................14. 

 Slash Burning ............................................15 

 Right-of-way Burning .................................16 

 *Resource Management Burning...............17 

 Grudge Fire................................................18 

 Pyromania..................................................19 

Smoking Out Bees or Game...................20 Fire Use/Resource Mgmt Burning 

Insect or Snake Control............................. 21 Fire Use/Resource Mgmt Burning 

 Job Hunting................................................22 

 Blasting......................................................23 

 Burning Building.........................................24 

 Power Line.................................................25 

 Fireworks ...................................................26 

 Playinq with Matches ................................. 27 

Repelling Predators.................................28 

House or Stove Flue Sparks ................... 29 

 Other (Unknown) .......................................30 

 Volcanic .....................................................31 

 Other (Known) ...........................................32→

Fire Use/Resource Mgmt Burning 

Miscellaneous/Burning Building 

General Cause Code

. Natural.......................................1 

 Camp Fire............................ 2 

 Smoking............................... 3 

. Fire Use ............................... 4 

 Incendiary ............................ 5 

 Equipment............................ 6 

 Railroads.............................. 7 

. Juveniles ..........................8 

 Miscellaneous................. 9

Valid Combinations 

101,131 

208 

310,330 

411,412,413,414,415,416,417 

518,519,522 

603,604,607,623,625 

704, 707 

819,826,827 

902,924,926 

(valid with all causes except 

smoking - 3) 

* Use cause 417 for an escaped prescribed fire.
DEPARTMENT OF THE INTERIOR FIRE MANAGEMENT PLAN 

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APPENDIX G 

 6. CLASS OF PEOPLE - Enter the most likely class code for the individuals 

involved in the ignition of the incident from the following: 

Code Description

0......... For all fires where cause is lightning or 

unknown. 

1..........For all individuals who own land or businesses within protection 

boundaries. 

2..........For all individuals, their agents or employees, who have special use 

permits on reporting agency lands within protection boundaries. 

3..........For contractors, their agents or employees for purchase of products or 

 construction of facilities. 

4. ........For all Federal, State, County, Municipal or other public employees. 

5..........For all permanent residents living inside or within one mile outside the 

 protection boundary. 

6..........For all seasonal residents or workers residing inside or within one mile 

 outside the protection boundary. 

7..........For all tourists, motorists, campers, etc., in transit through the protected 

 area. 

7. NET RESOURCE VALUE CHANGE PER ACRE OMIT 

8. STATISTICAL DATA

a. STATE - Enter the 2-letter State designator. 

b. OWNERSHIP - Enter from the following: One entry must be FWS (4). 

Ownership Code

BLM...................................... 1 

B IA.. .. .. . .. .. . .. .. .. .. . .. .. .. . 2 

NPS...................................... 3 

FWS ..................................... 4 

USFS.................................... 5 

Other Federal Lands............. 6 

State..................................... 7 

Private .................................. 8 

Other .................................... 9 

Foreign..................................... 0 
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APPENDIX G 

 

c. VEGETATIVE TYPE

Type Code

 Commercial Forest Land...................................1 

(Land producing or capable of producing wood 

products such as sawtimber, posts, poles, etc., and 

not withdrawn from timber use.) 

 

Noncommercial Forest Land..............................2 

(Land not capable of yielding wood products or 

 products or commercial forest land withdrawn from 

timber use.) 

 

Nonforest Watershed.......................................3 

(Land which has never supported forests or has been 

developed for nonforest uses.) 

 

d. ACRES - Nearest tenth acre. 

 

NOTE: Repeat Items 8a. thru 8d. for each change in State, Ownership or Vegetative 

Type. Items 8a. thru 8d. may be repeated up to 8 times if needed. 

 

9. AGENCY DATA

 

a. FIRE NAME - Name is limited to 10 characters. 

 

b. AREA NAME - Enter 2-digit Congressional District (CD) Code. 

 

c. LATITUDE/LONGITUDE - Point of Origin. Enter latitude and longitude to the 

 nearest minute for the point of origin. Can enter seconds. 

 

d. LEGAL DESCRIPTION - May be used in addition to Latitude/Longitude. Enter Township, 

 Range, Section and Meridian code. DO NOT USE DECIMALS OR FRACTIONS. 

 

e. COST CODE - Enter from the following Estimated Suppression. 

 

Cost Dollars Code

0-100....................1 

101-500................. 2 

501-1,500............... 3 

1,501-5,000............ 4 

5,001-25,000........... 5 

25,001-50,000......... 6 
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50,001-100,00......... 7 

100,001-500,000.......8 

500,001 & over........ 9 

f. OWNERSHIP - Point of Origin - (This value must also be entered in 8b). 

g. FISCAL YEAR - 4-digit automatic fill. 

h. AGENCY FISCAL DATA - Enter best estimate of actual costs charged to fire 

 number, including False Alarms (nearest dollar). 

i. UNIVERSAL TRANSVERSE MERCATOR - UTM - May be used in addition to 

 Latitude/Long itude. 

j. FIRE PROBLEM CLASS - Omit 

10. SUPPRESSION DATA

a. DATE DISCOVERED - MMDDYYYY - Enter 8-digit number for month, day, 

and year. (Example: October 12 = 10121997.) Enter the leading 0 (zero) if the 

month or day is less than 10. 

TIME DISCOVERED - HHMM - Enter 4-digit number using 24-hour clock. 

(Example: 8:13 p.m. = 2013). 

DETECTION - Enter code for detection type from following: 

Type Code 

Agency Lookout........................ A 

Other Lookout........................... B 

Fire Patrolman ...........................C 

Other Agency Employee............... D 

Cooperator Employee.................. E 

Agency Patrol Aircraft.................. F 

Cooperator Patrol Aircraft............. G 

Other Aircraft........................... H 

Permittee................................. I 

(All persons holding a use permit or contract on agency lands.) 

Visitor.................................... J 

Local Resident........................... K 

(Permanent Residents on or adjacent to agency lands.) 

Other...................................... L 

Smokejumper Patrol Flight............ M 

AFS Aircraft Not on Patrol............ N 

ACRES AT DISCOVERY - Enter to nearest tenth acre. 
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b. DATE OF INITIAL ATTACK - MMDDYYYY - Enter 8-digit number for 

month, day, and year. Enter the leading 0 (zero) if the month or day is less than 

10. 

TIME OF INITIAL ATTACK (defined as the time the first initial attack unit 

arrives at the incident) - HHMM - Enter 8-digit number using 24-hour clock. 

TYPE OF INITIAL ATTACK - Enter code from the following list for first, second, and 

third units attacking fire. 

Type Code 

Explosives (# of Crews).................................. A 

Plows or Trenchers....................................... B 

Light Engines (Less than 300 gal)...................... C 

Medium Engines (300-500 gal/50 GPM).............. D 

Heavy Engines (500 gal+/70 GPM)..................... E 

Handcrew (# of Individuals)............................. F 

Smokejumper (# of Individuals)........................ G 

Helitack Crew (# of Individuals)........................ H 

Light Airtanker (800-1000 gal-Type 3)................ I 

Medium Airtanker (1000-2000 gal-Type 2)........... J 

Heavy Airtanker (2000 gal+-Type 1).................. K 

Light Helitanker (up to 300 gal-Type 3 & 4).......... L 

Medium Helitanker (300-700 gal-Type 2)............ M 

Heavy Helitanker (700 gal+-Type 1)................... N 

Light Dozer (D-4 or Equiv.)............................. 0 

Medium Dozer (D-5, D-6 or Equiv.)................... P 

Heavy Dozer (D-7 and Larger or Equiv.).............. Q 

Other........................................................ R 

Monitoring Fire by Air (Not for natural out).......... S 

Monitoring Fire by Ground (Not for natural out)..... T 

Reconnaissance Aircraft................................. U 

AMOUNT OF INITIAL ATTACK - Enter the number of persons or pieces of 

equipment. When type of initial attack is Airplane Tanker (I-K) or Helicopter 

Tanker (L-N) or Helicopter Tanker (L-N), amount is number of drops. Code 

actual amount up to 99 items. For more than 99 items code zero (0). Enter number 

of flights for monitoring by air. Enter number of persons x number of days for 

ground monitoring (5 people x 3 days = 15). 

ACRES AT INITIAL ATTACK (defined as size of fire at time initial attack unit 

arrives at the incident) - Enter to the nearest tenth acre. 

 

c. DATE CONTROLLED - MMDDYVYY- Enter 8-digit number for month, day, 
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and year. Enter the leading 0 (zero) if the month or day is less than 10. 

TIME CONTROLLED - HHMM - Enter 4-digit number using 24-hour clock. 

ACRES AT CONTROL - Enter total acres within control lines to nearest 

tenth acre. 

 

d. DECLARED OUT - MMDDYYYY- Enter 8-digit number for month, day, and 

year. Enter the leading 0 (zero) if the month or day is less than 10. 

 

11. SITE DATA

 

a. TOPOGRAPHY - Enter topography in vicinity of fire origin from the 

 following: 

Topographic Feature Code 

Ridgetop......................... 1 

Saddle............................ 2 

Upper 1/3 of slope.............. 3 

Middle 1/3 of slope............ 4 

Lower 1/3........................ 5 

Canyon bottom.................. 6 

Valley bottom...................7 

Mesa or plateau................. 8 

Flat or rolling................... 9 

b. ASPECT - Enter appropriate code for the vicinity of the fire origin. 

Aspect Code 

Flat............................... 0 

N.................................. 1 

N E............................... 2 

E.................................. 3 

SE................................. 4 

S.................................. 5 

SW............................... 6 

W................................. 7 

NW............................... 8 

Ridgetop......................... 9 

c. SLOPE - Enter appropriate code for the vicinity of the fire origin. 

 

Percent Code 

0-25.............................. 1 

26-40............................. 2 
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41-55............................. 3 

56-75............................. 4 

75+............................... 5 

d. ELEVATION - Enter appropriate code for the vicinity of the fire origin. 

Elevation (ft) Code 

0-500.................... 0 

501-1500................ 1 

1501-2500.............. 2 

2501-3500.............. 3 

3501-4500.............. 4 

4501-5500.............. 5 

5501-6500.............. 6 

6501-7500.............. 7 

7501-8500.............. 8 

8500+................... 9 

e. NFDRS STATION - 6-digit NFDRS Station Number for the station 

describing the fire climate area in which the fire occurred, if available. Otherwise, 

leave blank. 

f. FUEL MODEL (MSGC) - (Required if "e" is completed.) 4-character 

(Model/Slope/Grass Type/Climate Class) NFDRS fuel model designator 

characterizing vicinity of origin. 

g. BEHAVIOR - Fire behavior characterizing vicinity of origin. (See Appendix 1 for 

narrative of the values.) 

Fire Behavior Code 

Smoldering...................... 1 

Creeping/Spreading............2 

Running.......................... 3 

Running and Spotting......... 4 

Torching......................... 5 

Crowning........................ 6 

Erratic Behavior................ 8 

h. BURNING INDEX (Required if "e" is completed.) - NFDRS BI for the station (if 

any) used to determine manning for initial attack on date of fire. Otherwise, leave 

blank. 

i. ADJECTIVE CLASS - Reserved for Alaska use 
DEPARTMENT OF THE INTERIOR FIRE MANAGEMENT PLAN 

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APPENDIX G 

12. PREVENTION DATA (Optional)

♦ k. DAY OF WEEK

Day of Week Code 

Sunday........................... 1 

Monday.......................... 2 

Tuesday.......................... 3 

Wednesday...................... 4 

Thursday........................ 5 

Friday............................ 6 

Saturday......................... 7 

♦ I. WAS FIRE INVESTIGATED (Y/N): 

 

Value Code 

Yes............................... Y 

No................................ N 

♦ m. FIRE CAUSE SUSPECT: Known or Unknown (KIU): 

 

Value Code 

Known........................... K 

Unknown........................ U 

♦ n. SUSPECT: Resident, Transient, or Unknown (RIT/U): 

 

Value Code 

Resident..........................R 

Transient........................ T 

Unknown........................ U 
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APPENDIX G 

13. FUELS / EMISSIONS DATA 

c. PLOT OBJECTIVE - Enter the code from the following table that best 

describes the primary burn objective. 

Cultural Scene Maintenance Code 

 Historical Scene Maintenance .................. 01 

 Other Cultural Site Maintenance............... 02 

Natural Systems Code 

 Exotic or Undesirable Species Control......10

 Habitat Maintenance ................................. 11 

 Research...................................................12 

Hazard Reduction Code 

 Fuel Reduction - Activity Fuels ..............20 

 Fuel Reduction - Natural Fuels...............21 

 Real Property Protection ...........................22 

 Boundary Protection ................................. 23 

 Fuel Break Maintenance ........................... 24 

Maintenance Code 

 Debris Removal .........................................30 

 Vista Removal............................................31 

 Health (Insect Control)...............................32 

 Right-of-Way Maintenance ........................33 

Silvicultural Code 

 Seed Bed Preparation ...............................40 

 Vegetative Type Manipulation ...................41 

 Insect and Disease Control........................42 

d. FIRING TYPE (Planned Ignitions only) - Enter a 2-digit code from the 

following tables. The first digit describes the firing strategy and the second digit 

describes the application method. 

1st position (strategy) Code 

head fire.................................. 1 

backing fire............................... 2 

spot fire................................... 3 

concentric fire........................... 4 
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2nd position (method) Code 

hand ignition..............................1 

aerial ignition.............................2 

remote ignition 

 e. COST/ACRE - Enter the average cost per acre experienced on the burn 

(total cost divided by total acres). 

 

f. FUEL MODEL - Enter the 2-digit FBPS Fire Behavior Models that best 

characterize the fuels in the burn area from the following codes. The first entry 

should represent the majority (at least 50 percent) of the fuels in the burn. The 

second entry should represent any lesser fuel type that occurs in the burn area. 

The first fuel model is required and the second fuel 

model is optional. 

 

Fuel Model Code 

Herb and Herb-Dominated 

Short Grass (1 foot).............................. 01 

Timber (Grass and Understory)................ 02 

Tall Grass (2.5 feet).............................. 03 

Chaparral and Shrub Fields 

Chaparral (6 feet)................................. 04 

Brush (2 feet)..................................... 05 

Dormant Brush, Hardwood Slash.............. 06 

Southern Rough.................................. 07 

Timber Litter 

Closed Timber Litter............................. 08 

Hardwood Litter...................................09 

Timber (Litter and Understory.................. 10 

Slash 

Light Logging Slash.............................. 11 

Medium Logging Slash.......................... 12 

Heavy Loggi ng Slash........................... 13 

I. OMIT 

m. OMIT 

 

n. FUEL LOADING FOR EMISSIONS (see Table 1) 

 

o. OMIT 

 

NARRATIVE (optional) - Enter information about the fire. 

 

TITLE INFORMATION (mandatory) Submitted By: 
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Submitted Title: 

Submitted Date: 

Entered By: 

Entered Title: 

Entered Date: 

 

MAP (optional) - Plot the perimeter of the fire on a hard copy. 

APPENDIX G - ATTACHMENT 1 

Narrative Descriptions of Fire Behavior 

1. Smoldering - A fire burning slowly through direct oxidation, in leaf mold, duff, peat, 

etc., in which there is little or no visible flame and little or no visible smoke, but some 

spread and definite heat output. 

2. Creeping/Spreading - A fire burning in fuel, such as leaf mold, litter, or light 

 grass, with both visible flame and smoke. 

3. Running - A fire with significant output of heat such that direct attack might be 

 impossible. Flame length could be expected to be in excess of 5 feet. 

4. Running and Spotting - Fire behavior similar to "Running", but burning embers 

 and firebrands are aloft and new ignitions started. 

5. Torching - A fire in which the crowns or canopies of individual or groups of trees ignite; 

however, the fire does not continue into the canopy of surrounding vegetation. 

6. Crowning - The fire tends to move through the overstory or canopy, generally 

 keeping pace with or perhaps even preceding the surface fire. 

7. Crowning and Spotting - The same as "Crowning", with firebrands carried aloft 

 and starting fires some distance ahead. 

8. Erratic Behavior - Involves fire whirls, fire storms, blowup conditions, or other fire 

behavior in which the fire's rate and direction of spread is largely unpredictable. 
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APPENDIX H 

INCIDENT STATUS SUMMARY REPORT 

(ICS-209) 

FOR 

BIG OAKS NATIONAL WILDLIFE REFUGE 
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Incident Status Summary (ICS-209) 

1: Date 2: Time 3: Initial | Update | Final 

 | | 

4: Incident Number 5: Incident Name 

6: Incident Kind 7: Start Date Time 8: Cause 9: Incident Commander 10: IMT Type 11: State-Unit

12: County 

13: Latitude and Longitude 

Lat: 

Long: 

Ownership:

14: Short Location Description (in reference to nearest town):

Current Situation 

15: 

Size/Area 

Involved 

16: % Contained 

or 

MMA 

17: Expected 

Containment 

Date: 

Time: 

18: Line to 

Build 

19: 

Costs

to Date

20: Declared 

Controlled 

Date: 

Time: 

21: Injuries this 

Reporting 

Period: 

22: 

Injuries 

to Date: 

23: 

Fatalities 24: Structure Information

 Type of Structure # 

Threatened

# 

Damaged

# 

Destroyed

Residence 

Commercial 

Property 

25: Threat to Human Life/Safety: 

Evacuation(s) in progress ---- 

No evacuation(s) imminent -- 

Potential future threat -------- 

No likely threat --------------- Outbuilding/Other 

26: Communities/Critical Infrastructure Threatened (in 12, 24, 48 and 72 hour time frames): 

12 hours: 

24 hours: 

48 hours: 

72 hours: 

27: Critical Resource Needs (kind & amount, in priority order): 

1. 

2. 

3. 

28: Major problems and concerns (control problems, social/political/economic concerns or impacts, 

etc.) Relate critical resources needs identified above to the Incident Action Plan. 

29: Resources threatened (kind(s) and value/significance): 

30: Current Weather Conditions 

Wind Speed: mph Temperature: 

Wind Direction: Relative Humidity: 

31: Resource benefits/objectives (for 

prescribed/wildland fire use only):
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32: Fuels/Materials Involved: A drop down box with the 13 Fire Behavior Fuel Models has been 

added. The incident would select the predominant fuel model with the option to include additional 

fuels information in the text box. 

33: Today's observed fire behavior (leave blank for non-fire events): 

34: Significant events today (closures, evacuations, significant progress made, etc.): 

Outlook 

35: Estimated 

Control 

Date and Time: 

36: Projected Final 

Size: 37: Estimated Final 

Cost:

38: Tomorrow's Forecasted 

Weather 

Wind Speed: 

mph Temperature: 

Wind Direction: Relative 

Humidity: 

39: Actions planned for next operational period: 

40: Projected incident movement/spread during next operational period: 

41: For fire incidents, describe resistance to control in terms of: 

1. Growth Potential - 

2. Difficulty of Terrain - 

42: How likely is it that containment/control targets will be met, given the current resources and 

suppression/control strategy? 

43: Projected demobilization start date: 

44: Remarks: 

45: Committed Resources 

CRW1 CRW2 HEL1 HEL2 HEL3 ENGS DOZR WTDR OVHD Agency SR ST SR ST SR SR SR SR ST SR ST SR SR

Camp 

Crews

Total 

Personnel

 

 

 

 

 
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Total 

46: Cooperating and Assisting Agencies Not Listed Above: 

Approval Information 

47: Prepared by: 48: Approved by: 49: Sent to: by: 

Date: Time: 
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APPENDIX I

FIRE DISPATCH PLAN 

BIG OAKS NATIONAL WILDLIFE REFUGE 
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Big Oaks National Wildlife Refuge 

Fire Dispatch Plan 

When report of smoke or fire is received get as much information form the caller as possible: 

Location of smoke or fire:______________________________________________ 

Location of caller:____________________________________________________ 

Name and telephone number of caller:____________________________________ 

Color of smoke:______________________________________________________ 

Size of Fire:_________________________________________________________ 

Type of fuel:_________________________________________________________ 

Character of the fire (running, smoldering, etc.):_____________________________ 

___________________________________________________________________ 

Is anyone fighting the fire?:_____________________________________________ 

Did they see anyone in the vicinity or vehicles leaving the area?:________________ 

Weather at fire location:_______________________________________________ 

___________________________________________________________________ 

1. Check map location of fire and determine ownership/protection status. 

2. Notify Kent Fire Department. 

3. If fire is on Refuge or threatening Refuge, immediately dispatch appropriate personnel, 

fire engines, hand tools, and mobile radios to site of the fire. 

4. Notify Project Leader or Acting Project Leader. 

5. Maintain a log of all radio and telephone communications. 

6. Remain on duty and dispatch additional assistance as ordered from the fire. See 

following support items. 

Notify Indiana State Police (812-689-5000), Indiana Dept. of Transportation (812-273-2240), 

and respective county if smoke development appears to threaten visibility along area highways. 

Dispatch Refuge personnel to secure the area near the fire from Refuge visitors and curious 

onlookers. 
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Refuge Personnel 

 Office Home 

Joe Robb, Refuge Manager 812-273-0783 812-352-8737 

Dan Matiatos, Refuge Operations Specialist 812-273-0783 812-265-8175 

Brian Winters, Prescribed Fire Specialist 812-273-0783 812-273-3464 

David Jones, Fire Program Tech. 812-273-0783 812-574-8733 

Jason Lewis, Wildlife Biologist 812-273-0783 812-574-1114 

Travis Robison, Refuge Officer 812-273-0783 812-265-3472 

Janet Pike, Administrative Tech. 812-273-0783 812-523-2338 

Kent Volunteer Fire Department

Reporting Fires – Jefferson County Dispatch 812-265-2648 

Lloyd Lamb (Kent Fire Chief) 812-265-8311 812-273-5964 

Greg Lamb (Kent Assistant Chief) Cell 812-529-1200 

Regional Fire Management Coordinator (RFMC)

Stephen Jakala 612-713-5366 Cell 612-817-6797 

 

Fire Management Officer (FMO)

Steve Nurse 989-826-1783 989-826-2378 

Other Services

Kings Daughters Hospital 812-265-5211 

IN Department of Transportation 

Versailles 812-689-5788 

Madison 812-273-2240 

Indiana State Police (Versailles) 812-689-5000 

Ripley Co. Sheriff 812-689-5555 

Jefferson Co. Sheriff 812-265-2648 

Jennings Co. Sheriff 812-346-5111
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APPENDIX J

GO/NO GO CHECKLIST
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APPENDIX J 

GO-NO-GO CHECKLIST

YES NO Do you have an APPROVED prescribed fire plan? 

YES NO Are ALL fire prescription elements met? 

YES NO Are ALL smoke management specifications met? 

YES NO Are ALL permits and clearances obtained? 

YES NO Has an area spot weather forecast been obtained and is it favorable? 

YES NO Are ALL required personnel in the Prescribed Fire Plan on-site? 

YES NO 

Has the contingency planning process adequately considered fuels adjacent to and 

within a reasonable proximity to the burn area? 

YES NO 

Has the availability of ALL contingency resources been checked, and are they 

available? 

YES NO Have ALL personnel been briefed on the project objectives and their assignment? 

YES NO 

Have ALL personnel been briefed on their safety hazards, escape routes, and safety 

zones? 

YES NO Have ALL the required notification been made? 

YES NO Are the on-site holding forces adequate for containment under the expected 

conditions? 

YES NO 

In YOUR OPINION, can the prescribed fire meet the planned objectives, and can it be 

carried out according to the approved plan? 

I certify that I have reviewed the burn objectives and have reviewed, I am in agreement 

that the Prescribed Fire Complexity Analysis is correct, and that all the above questions 

were answered “YES”.

 Prescribed Fire Burn Boss Date

____________________________ ________________

Refuge Manager Date
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APPENDIX K 

U.S FISH AND WILDLIFE SERVICE 

ENVIRONMENTAL ASSESSMENT 

BIG OAKS NATIONAL WILDLIFE REFUGE 

Jefferson, Jennings, & Ripley Counties, Indiana 

 FIRE MANAGEMENT PLAN 

U.S Fish and Wildlife Service 

1661 W JPG Niblo Road 

Madison, Indiana 47250 

March 2001
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TABLE OF CONTENTS 

I. PURPOSE AND NEED ...............................................................................................1

A. Purpose .................................................................................................1

B. Need................................................................................................... ....1

C. Decisions that Need to be Made ..............................................................2

D. Background ...............................................................................................2 

II. ALTERNATIVES ............................................................................................................4

A. Alternatives not Considered for Detailed Analysis ..............................4

B. Alternatives Carried Forward for Detailed Analysis .......................... 4

1. Alternative A - Management Ignited Prescribed Fire 

and Appropriate Management Response to Wildland 

Fire The Proposed Action ............................................... 4 

2. Alternative B - Full Suppression - No Action ............... 5

3. Alternative C - Management Ignited Prescribed Fire 

and Fire Suppression .......................................................5 

III AFFECTED ENVIRONMENT ......................................................................................6

A. Physical Characteristics ..........................................................................6

B. Biological Resources ...............................................................................6

1. Habitat/Vegetation ..........................................................6

2. Threatened, Endangered and Candidate Species ...... 7 

3. Other Wildlife Species ...................................................7

C. Land Use ..................................................................................................8

D. Cultural/Paleontological Resources ......................................................8

E. Local Socio-economic Conditions ..........................................................8 

IV ENVIRONMENTAL CONSEQUENCES ....................................................................9 

A. Alternative A - Management Ignited Prescribed Fire and Appropriate 

Management Response to Wildland Fire (Proposed Action) ............ 9 
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APPENDIX K 

1. Soil and Water Resources ................................................9

2. Vegetation and Fuels .........................................................9

3. Wildlife................................................................................9

4. Endangered and Threatened Species.............................10

5. Cultural Resources ..........................................................10

6. Visual/Aesthetics/Air Shed..............................................11

7. Visitor Use/Safety ............................................................11

8. Economic .............................. .........................................11

9. Cumulative Impacts ........... ............................................12

B. Alternative B - Full Suppression (No Action) .......................................12

1. Soil and Water Resources ..............................................12

2. Vegetation and Fuels .......................................................12

3. Wildlife..............................................................................13

4. Endangered and Threatened Species.............................13

5. Cultural Resources ..........................................................13

6. Visual/Aesthetics/Air Shed..............................................14

7. Visitor Use/Safety ............................................................14

8. Economic ..........................................................................14

9. Cumulative Impacts ........................................................15

C. Alternative C - Management Ignited Prescribed Fire and Fire 

Suppression ..............................................................................................15 

1. Soil and Water Resources ..............................................15

2. Vegetation and Fuels ......................................................15

3. Wildlife.............................................................................16

4. Endangered and Threatened Species.............................16

5. Cultural Resources .........................................................16

6. Visual/Aesthetics/Air Shed..............................................17

7. Visitor Use/Safety ............................................................17

8. Economic ..........................................................................18

9. Cumulative Impacts ........................................................18 

D. Summary of Environmental Consequences by Alternative.................19

V. List of Preparers .............................................................................................................20

VI. Coordination and Consultation With the Public and Others .....................................20

VII. Comments Received and Response..........................................................................22 
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APPENDIX K 

I. PURPOSE AND NEED 

A. Purpose 

Policy of the u.s. Department of the Interior states that managers of refuge lands with vegetation 

capable of sustaining fire will develop a fire management plan (FMP) (910 DM 1). The Fish and 

Wildlife Service's Fire Management Handbook (621 FW 1.4-5) states that, "Every area with burnable 

vegetation must have an approved Fire Management Plan." This Environmental Assessment (EA) 

explores the various alternatives in which Service policy can be carried out, consistent with agency 

direction and analyzes the foreseeable impacts associated with an integrated fire management 

program. 

This EA has been developed to evaluate environmental consequences of the FMP being created for the newly 

established Big Oaks National Wildlife Refuge. The FMP is one of many step-down plans that build upon 

management actions adopted in the Refuge's Interim Comprehensive Conservation Plan (CCP). The Interim 

CCP designates 2 Grassland Focus Areas, comprising 16,000 acres, where prescribed burning is the preferred 

method of maintaining early successional habitats including grasslands (Interim CCP 1.8 and Figure 4). The 

Interim CCP declares that wildland fire suppression needs will be outlined in the FMP (Interim CCP 1.9). This 

FMP is further necessary to meet Service, Departmental and National policy mandates concerning fire 

management. 

B. Need 

The FMP for the Refuge has been developed to provide direction and continuity in establishing 

operational procedures to guide all fire management activities. The Refuge FMP is needed to guide 

us while implementing resource management objectives as defined in our interim management 

document titled Interim Comprehensive Conservation Plan for Big Oaks National Wildlife Refuge. 

The FMP will be updated as needed to comply with all permanent management plans as they are 

developed for this new Refuge. The Refuge does not currently have a FMP. 

The goal of this FMP and the Alternatives developed is the management of wildland fire to: 

a. Provide for the protection of life and property. 

b. Provide for protection of habitats required by endangered and threatened species. c. 

Implement a safe and cost effective program of resource protection and enhancement. d. 

Reduce hazardous fuels; and protect native biotic communities. 

The alternatives detailed in this document will accomplish these goals to varying degrees. 
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APPENDIX 

K 

C. Decisions that Need to be Made 

Through public and staff input, the Regional Director (Region 3) of the Fish and Wildlife 

Service must decide whether to select the preferred alternative (proposed Action) or one of the 

other alternatives as presented in this EA or to select an entirely new alternative that was not 

developed for this EA. The Regional Director must then decide whether the selected alternative 

is at a significance level that requires an Environmental Impact Statement be developed or 

whether a Finding of No Significant Impact (FONS!) determination can be made. 

D. Background 

Big Oaks NWR was established on June 30, 2000, as an overlay refuge on approximately 

50,000 acres north of the historic firing line of the former Jefferson Proving Ground Through a 

real estate permit of the Department of the Army, the Service maintains Big Oaks NWR as 

habitat for endangered species, migratory birds and other wildlife in order to further the 

purposes of the Endangered Species Act and the Fish and Wildlife Act 

The wide array of both resident and migratory species found on the Refuge is due to the varied 

habitat types found in the grassland/forest/wetland complex. The mix of forests, grasslands, 

forested wetlands, emergent marsh, and early successional stages of vegetation all contribute to the 

species diversity of the wildlife community found at the Refuge. Fire is a critical ecological process in 

maintenance of successional habitats required by many species of wildlife that are of management 

concern within the Region. 

The value of early successional habitat within the Refuge has been recognized at both the state 

and national levels. The Refuge has been named a Globally Important Bird Area by the 

American Bird Conservancy due to large Henslow's sparrow populations within the Refuge's 

grassland areas. 

All alternatives considered within this EA deal with various combinations of 3 fire types; 

human caused wildland fires, naturally occurring wildland fires and management ignited 

prescribed fires. Under all alternatives discussed within this EA, all human-caused wildland 

fires and all escaped management ignited prescribed fires will be suppressed. The following 

definitions are used throughout this document. 

Suppression - All the work of extinguishing or confining a fire beginning with its 

discovery..
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Management Ignited Prescribed Fire - Fire intentionally ignited to accomplish 

 management objectives in specific areas under prescribed conditions identified in 

 an approved Prescribed Fire Plan. 

Naturally Ignited Wildland Fire- Fire ignited by natural means (usually lightning) which is 

permitted to burn under specific environmental conditions, in preplanned locations, with 

adequate fire management personnel and equipment available to achieve natural ignition fire 

patterns. 

Appropriate Management Response - The specific actions taken in response to a wildland 

fire to implement protection and/or fire use objectives. 

Past use history of the Refuge by the Army, as a munitions testing area, has lead to the contamination of 

many areas of the Refuge by unexploded ordnance (UXO) and depleted uranium (DU) a radioactive material 

used for testing. All areas of the Refuge are considered contaminated by UXO or DU and all UXO and DU 

safety measures outlined in this EA must be followed. While the complete health affects of burning in areas 

containing DU and other contaminants are unknown, current scientific evidence available suggests that DU is 

not readily dispersed through fire and that the exposure level is an order of magnitude lower than the U.S. 

Environmental Protection Agency action level (Williams et. al. 1998). Safety measures in place to avoid 

UXO hazards are more restrictive than safety measures advised for DU and other contaminants. At all times 

we will utilize the more restrictive UXO safety measures. 

Suppression options are limited on the refuge due to the past use-history of munitions testing 

by the Army. All areas of the refuge may contain UXO and earth disturbing activities are 

generally prohibited. Certain areas of the Refuge contain DU, a radioactive material which 

was used by the Army during testing. Due to these contaminants, full suppression can only 

occur along the boundary of the refuge. The following definitions are the terms used to identify 

appropriate suppression responses: 

Confine - To restrict the wildland fire within determined boundaries, established either prior 

to or during the fire. These identified boundaries will confine the fire with no direct action 

being taken to extinguish the fire. At Big Oaks NWR no ground-disturbing methods can be 

used to implement the Confine strategy, except along the perimeter of the refuge, due to the 

presence of UXO and DU. 

Contain - To restrict a wildland fire to a defined area using a combination of natural and 

constructed barriers that will stop the spread of the fire under the prevailing and forecasted 

weather conditions until it is out At Big Oaks NWR no ground-disturbing methods can be 

used to implement the Contain strategy, except along the perimeter of the refuge, due to the 

presence of UXO and DU. 

Control - To aggressively fight a wildland fire through the skillful use of personnel, 

equipment, and aircraft to establish firelines around a fire, halt the fire's spread, an
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APPENDIX K 

extinguish all hot spots until the fire is completely out. This strategy is an effective technique to 

achieve prompt control of a wildland fire. At Big Oaks NWR no ground-disturbing methods can be 

used to implement the Control strategy, except along the perimeter of the refuge, due to the presence 

of UXO and DU. 

ALTERNATIVES 

A Alternatives not Considered for Detailed Analysis 

An alternative of allowing all fires to bum at all times was initially considered but eventually 

dismissed as not suitable for further consideration in the development of this proposal. This 

alternative was rejected because it fails to meet u.s. Fish and Wildlife Service policy in regards to 

potential liability for losses of life and property, as well as unacceptable environmental, social, and 

economic costs. 

B. Alternatives Carried Forward for Detailed Analysis 

1. Alternative A - Management Ignited Prescribed Fire and Appropriate 

 Management Response to Wildland Fire - The Proposed Action 

This Alternative would allow the Refuge to utilize a full range of fire management tools. 

Management ignited prescribed fires would be used by managers to reduce fuel hazards, 

simulate natural fire processes, and enhance opportunities for management of prescribed 

natural fires. This alternative strives to maintain the 8,000 acres of grassland and 6,000 acres 

of other early successional habitats that currently exist within Big Oaks NWR. Suppression 

would occur on all fires during the period April 15 through September 15 to avoid direct 

impacts to Federally endangered M sodalis. Known cultural resources would be protected 

under this and all other Alternatives. 

Under this alternative all human-caused wildland fires would be suppressed. All naturally 

ignited wildland fires would be allowed to bum depending on the appropriate management 

response developed from analysis of the local situation, values-to-be-protected, management 

objectives, external concerns, and refuge objectives when the fire occurs. Suppression would 

be undertaken on naturally ignited wildland fires that threaten life, property, resources or 

exceed prescription limits developed for that fire. No prescribed fires will be ignited this 

year (2001) within any portion of the DU area. 

4 
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APPENDIX K 

2. Alternative B - Full Suppression - No Action 

The Refuge is abiding by current Departmental and Service policies that require full 

suppression of all wildland fires and preclude management ignited prescribed fires for all 

refuges without an approved FMP. Under this alternative all ignitions, including those of both 

natural and human-caused origin, would be suppressed and no management prescribed fires 

would be conducted. This Alternative summarizes actions that the Refuge would take until we 

have an approved FMP (No Action Alternative). 

Under this alternative all ignitions, including those of both natural and human-caused origin, 

would be suppressed and no management prescribed fires would be conducted. Hazard fuel 

reduction would be accomplished by mechanical methods to the extent practical and consistent 

with land management objectives. No management ignited prescribed fires would be initiated 

under this Alternative and therefore no management ignited prescribed fires would occur this 

year (2001) within the DU area. Mechanical manipulation on the Refuge would be limited to 

interior roadway and Refuge boundary rnaintenance and protection due to UXO and DU safety 

concerns. As with all other Alternatives, suppression would occur on all fires during the period 

April 15 through September 15 to avoid direct impacts to Federally endangered M sodalis. 

Known cultural resources would be protected under this and all other Alternatives. 

3. Alternative C - Management Ignited Prescribed Fire and Fire Suppression 

This Alternative, like Alternative A, would enable the Refuge to use prescribed fires in predetermined areas, within pre-planned conditions, to accomplish specific resource management 

objectives. Fire hazards around Refuge boundaries would be reduced under this alternative. 

This Alternative differs from Alternative A in that all wildland fires would be suppressed 

regardless of cause or location. 

Like Alternative A, this Alternative strives to maintain the 8,000 acres of grassland and 6,000 

acres of other early successional habitats that currently exist within Big Oaks NWR. As with all 

other Alternatives, suppression would occur on all fires during the period April15 through 

September 15 to avoid direct impacts to Federally endangered M sodalis. Known cultural 

resources would be protected under this and all other Alternatives. Suppression would occur on 

all fires during the period April 15 through September 15 to avoid direct impacts to Federally 

endangered M sodalis. No prescribed fires will be ignited this year (2001) within any portion of 

the DU area. 
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APPENDIX K

III AFFECTED ENVIRONMENT 

A Physical Characteristics 

The area has a typical midwestern continental climate and the weather is quite variable, 

because of the influx of high and low pressure systems and warm moist air from the Gulf 

of Mexico. Summers are generally quite warm, while the winters are moderately cold 

Precipitation is fairly uniform throughout the year, averaging 3 - 4 inches per month. 

Spring and summer thunderstorms push the monthly average over 4 inches for the 

March-June period, while the fall of the year sees monthly rainfalls close to 3 inches 

Measurable snowfall can be experienced throughout the November to March period, and 

averages about 15 inches annually. 

Ground elevations at the Refuge are generally between 850 - 900 feet Net Geodetic 

Vertical Datun, with elevations along the numerous streams flowing through the area 

being about 30 - 50 feet lower. Site drainage is generally to the west and southwest. 

 B. Biological Resources 

1. Habitat/Vegetation 

The following habitat types were derived from 1995 and 1997 aerial photos. 

Photo interpretation was completed in 1998. Classifications are comparable to 

those used in the US GAP Analysis Project. Individual classifications were based 

on a minimum detection size of 5 acres. The distinction between forest and 

woodland is based on the amount of canopy closure. Forest areas have 60% or 

greater canopy closure and woodlands have 20% to 40% canopy closure. 

Upland forests comprise 27,300 acres (54%) of the Refuge. The upland forest 

classification includes both evergreen and deciduous species ranging in age from young 

(~15-30 years) to mature (>50 years). The primary evergreen species at the Refuge is 

eastern red cedar (Juniperus virginian a). Dominant deciduous trees include sweetgum 

(Liquidambar styraciflua), red maple (Acer rub rum ) and black gum (Nyssa sylvatica) on 

poorly drained upland depression sites. Tulip poplar (Liriodendron tulipifera) and white 

ash (Fraxinus americana) are the species making up the young upland forests on well 

drained sites. White oak (Quercus alba), red oak (Quercus rubra) and shagbark hickory 

(Carya ovata) are the dominant species on intennediate and within some mature 
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upland forests. American beech (Fagus grandifolia) and sugar maple (Acer saccharum) 

dominate the remainder of the mature upland forests. 

Our second most abundant habitat at the Refuge is grasslands. This habitat type makes up 8,400 

acres (17%) of the Refuge. The dominant grassland species at the Refuge appears to be 

broomsedge (Andropogon sp.). 

Other habitat types at the refuge include 5,200 acres (10%) palustrian wetland, 3,100 acres (6%) 

woodland, 6,100 acres (12%) early successional, 150 acres (0.5%) of open water, and 

approximately 150 acres (0.5%) of bare soil and paved areas. Woodland species composition is 

comparable to that of upland forest. The palustrine wetland category includes all growth stages 

of palustrine vegetation including early successional and forested wetland. 

2. Threatened, Endangered and Candidate Species 

Big Oaks NWR is used as summer habitat by federally endangered Indiana bats (Myotis 

sodalis). Mist netting efforts by Service personnel have documented use of all riparian corridors 

within the Refuge by M. sodalis and all areas of the Refuge are considered summer habitat of M 

sodalis. 

Big Oaks NWR is within the range of the federally threatened bald eagle (Haliaeetus 

leucocephalus). H. leucocephalus have previously utilized the refuge as a wintering area. No H. 

leucocephalus are known to nest or utilize the Refuge during the breeding season. All riparian 

and lacustrine, palustrine and riverine and adjacent habitats would be considered suitable for H. 

leucocephalus. 

3. Other Wildlife Species 

The Refuge provides habitats for, and subsequently attracts, an abundance of wildlife species. 

Twenty-two species of amphibians, 17 species of reptiles, 46 species of mammals, and over 200 

species of birds have either been recorded or can reasonably be expected to be present on the 

Refuge for a portion of the year. 

7 
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C. Land Use 

The Refuge is situated on over 50,000 acres in southeastern Indiana within Jefferson, Ripley and 

Jennings Counties. The nearest communities are Madison, Indiana, about 5 miles south of the 

southern boundary of the refuge, and Nebraska and Holton, Indiana, about 1 mile north of the 

northern site boundary. Land use within the 3 county's 758,000 acre area is predominantly 

agriculture (67%). 

D. Cultural/Paleontological Resources 

Several Native American groups including the Miami, Wea, Piankawhaw, and Shawnee inhabited 

eastern Indiana, where they lived in summer agricultural villages and winter temporary 

hunting/trapping camps. Later arrivals in the area included the Delaware, Potawatomi, and 

Kickapoo groups (Stafford 1985 :2-15). The Delaware and the Potawatomi are reported to have 

occupied the land east of Butlerville in Jennings County (Leland et al. 1956:89) that is today part of 

Big Oaks NWR (Mbutu et. al. 1996). Artifacts attesting to use of the area by Native Americans can 

be found on the Refuge (U.S. Army 1996). 

Euro-American settlement of Big Oaks NWR and its vicinity can be traced back to about 1811 

(Baker 1991:7). The earliest Euro-American families in Jefferson, Jennings, and Ripley counties 

were subsistence farmers. Subsistence fanning remained the principal occupation during the early 

half of the nineteenth century. The portions of Jefferson, Jennings, and Ripley counties which the 

Refuge now occupies had consisted of an area of dispersed farmsteads, schools, churches, 

cemeteries, and small crossroad communities. Artifacts documenting this use are quite evident on 

the landscape of the Refuge today. 

E. Local Socio-economic Conditions 

The population within the three counties totaled 78,074 based on the 1990 census. From 1990 to 

1999, population increased an estimated 12% to 87,394 within the 3 county area. Land use within 

the 3 county's 306,914 ha area is predominantly agriculture (67%). In 1989, the primary 

employment sector was manufacturing followed by government, retail trade and services sectors.
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IV ENVIRONMENTAL CONSEQUENCES 

A. Alternative A - Management Ignited Prescribed Fire and Appropriate 

 Management Response to Wildland Fire (proposed Action) 

1. Soil and Water Resources 

Implementation of this alternative would seek to minimize impacts on soil and 

water resources by controlling the area, timing, and intensity of management 

ignited prescribed fires but these impacts could not be totally eliminated. Areas of 

extreme fuel concentrations would be reduced under this alternative which 

would, in turn, decrease the likelihood of extreme fire events. Short-term impacts 

from management ignited prescribed fires would be greater for this alternative 

compared to Alternative B and the same as Alternative C. Long term impacts to 

soil and water impacts would be the same among all Alternatives. 

2. Vegetation and Fuels 

Under this alternative management ignited prescribed fires could help maintain 

vegetation communities and reduce accumulations of fuels which contribute to 

larger fires. The natural ignition pattern of fire on the landscape would likely 

resemble a more systematic pattern. Naturally ignited wildland fires would be 

allowed to occur provided sufficient resources are on hand to provide for the 

safety and protection of property and personnel. 

In vegetation around sensitive resource areas, prescribed burning could be used to 

simulate the effects of natural fire. The impacts of tactical suppression operations 

would be similar under all alternatives. Due to the safety hazards associated with 

UXO and DU, suppression actions would primarily be limited to the use of 

natural features, roads and backing fires. 

3. Wildlife 

Under this alternative, conditions favorable to fire dependent wildlife species 

would be simulated but not in the exact manner created by natural ignitions. The 

use of management ignited prescribed fires would lessen the build-up of fuels and 

lessen the intensity of all 
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APPENDIX K 

wildland fire types (natural or human-ignited). The distribution of habitat types, and 

the wildlife species that depend on these habitats, would be determined by 

management ignited prescribed fire location, timing, conditions, and patterns of 

burning and only infrequently (every 50-100 years) by naturally ignited wildland 

fires. Prescribed fire could be implemented to stimulate plant growth, remove nonnative plant species, and eliminate downed fuels. 

 4. Endangered and Threatened Species 

The effects of all Alternatives on federally endangered and threatened species has 

been evaluated in an Endangered Species Act section 7 consultation with the 

Bloomington, Indiana Ecological Service's Office. Initial indications are that 

management ignited prescribed fires under all Alternatives could be designed to 

avoid direct impacts to M soda/is. This would by achieved by suppressing all fires 

between April 15 and September 

15. Management ignited prescribed fires would actually improve M sodalis 

maternity roost habitat. M soda/is prefer large trees in the open or at edges, they 

seem to prefer open canopies and fragmented forest landscapes and they seem to 

prefer forests with an open understory (USFWS 1999). These are conditions that 

would be found in a fire altered landscape. No impacts to H. leucocephalus are 

anticipated. The effects of suppression activities on endangered and threatened 

species would be similar with all alternatives due to the limited disturbance imposed 

by UXO and DU safety considerations. 

 5. Cultural Resources 

Known cultural resources would be protected under this and all other Alternatives. 

Two historic structures adjacent to, and surrounded by, the Refuge are not likely be 

effected in all but the most extreme fire situation. The use of management ignited 

prescribed fires under this Alternative would reduce fuels and lessen the chance of 

an extreme fire occurring. The effects of suppression activities on cultural resources 

would be avoided under this and all other Alternatives evaluated due to the limited 

disturbance imposed by UXO and DU safety considerations. 
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 6. Visual/Aesthetics/Air Shed 

This alternative could result in the greatest range of impacts on visual resources as 

a result of the various levels of fire intensity that could occur during a naturally 

ignited wildland fire. The appropriate management response to a naturally ignited 

wildland fire would consider visual, aesthetic and airshed impacts at the time of 

the initial incident and at each subsequent evaluation. 

Under this Alternative, effects of management ignited prescribed fires could be 

controlled. Short term smoke episodes would still be possible under this 

alternative, but fuels reduction through management ignited prescribed fires 

would greatly reduce episodes of severe air pollution due to large, uncontrolled 

wildland fires. Given the limited range of suppression options available due to 

UXO and DU safety constraints, visual impacts from suppression activities 

would be very minor and similar under all Alternatives. 

 7. Visitor Use/Safety 

This alternative provides for the most natural habitats for visitor use. Due to 

timing of fire occurrence and conditions effecting fire behavior, visitors at certain 

times and Refuge neighbors could be inconvenienced. Initial safety hazards are 

lower under this alternative than under either Alternative B or C because of 

reduced direct exposure of firefighters to possible UXO and DU contamination. 

Hazards would still be encountered while performing suppression duties due to 

direct flame exposure, respiratory problems associated with smoke inhalation, and 

the use of equipment under conditions of poor visibility. 

8. Economic 

Reduction of hazardous fuels near structures and other capital improvements 

would reduce potential economic losses from a catastrophic fire. Use of 

management ignited prescribed fires would minimize the risk of escaped fires due 

to the preplanning process associated with prescribed burning. Costs of 

management ignited prescribed fires is comparable to Alternative C. By utilizing 

the appropriate management response, for naturally ignited wildland fires, the cost 

of wildland fire suppression would likely be lower than suppression costs in 

Alternative B or C. No direct or indirect economic impact (positive or negative) to 

the surrounding communities is anticipated with this or any other Alternative 

considered. 
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 9. Cumulative Impacts 

When reviewing the effects of a fire management program we must consider not 

only the effects of burning efforts at Big Oaks NWR but also the combined 

effects on the environment of all burning and other sources of particulate matter 

and overall impacts to habitats throughout the region. Cumulative impacts of the 

implementation of this Alternative on air quality in Indiana are minimal. No area 

within the region is a non-attainment air quality area and none are likely to be 

directly or indirectly effected to approaching a level of significance needing to be 

addressed. 

No cumulative loss of early successional habitats or contiguous forest would 

result at Big Oaks NWR or within the state or region from implementation of this 

Alternative. This alternative strives to maintain the 8,000 acres of grassland and 

6,000 acres of other early successional habitats that currently exist within Big 

Oaks NWR. 

B. Alternative B - Full Suppression (No Action) 

 1. Soil and Water Resources 

Impacts on water quality would be negligible with low intensity fires. Over time, 

with the build-up of fuels, the chance of a severe fire would increase. In the event 

a high intensity fire did occur, an increase in surface runoff leading to soil erosion 

and siltation could be expected. The long-term impacts to soil and water resources 

is estimated to be comparable among all Alternatives considered 

 2. Vegetation and Fuels 

This alternative could create an unnatural increase in fuel conditions leading to 

increased potential for larger wildland fires with greater intensities. The 

elimination of frequent, light-burning fires would change the composition of 

vegetation and allow the hazardous build-up of combustible fuels. This could 

result in more extreme burning conditions in which wildland fires become larger 

and more dangerous. Over time, as the present early successional vegetation is 

replaced by mature forest, fire behavior would be expected to decrease. Full 

suppression without the inclusion of management ignited prescribed fires would 

reduce species diversity by excluding fire dependent, shade intolerant species. 

The effects of suppression efforts on vegetation and fuels would be similar to 
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Alternatives A and C since UXO and DU safety considerations would prevent 

intensive suppression efforts on areas of the Refuge other than the perimeter. 

3. Wildlife 

Species dependent upon fire influenced ecosystems could decline and be replaced 

by species more tolerant of conditions created when fire is removed as an 

ecological process. Due to UXO and DU safety considerations, the effect of 

suppression impacts would be similar among all Alternatives. 

 4. Endangered and Threatened Species 

The effects of all Alternatives on federally endangered and threatened species is 

currently being reviewed in an Endangered Species Act section 7 consultation 

with the Bloomington, Indiana Ecological Service's Office. This consultation is 

being conducted concurrently with the drafting of this EA. No impacts to H. 

leucocephalus are anticipated. The effects of suppression activities on 

endangered and threatened species would be similar with all alternatives due to 

the limited disturbance imposed by UXO and DU safety considerations. 

Fires under all Alternatives would be suppressed between April 15 and 

September 15 to avoid direct impacts to M. sodalis. Management ignited 

prescribed fires are designed to improve M. sodalis maternity roost habitat. 

Suppression of all fires and removal of management ignited prescribed fires 

would alter the landscape over time creating a more closed forest system without 

the open understory and openings preferred by M sodalis. Adoption of this 

Alternative would lead to indirect impacts occurring to M sodalis.

 5. Cultural Resources 

The limited use of earth-disturbing suppression activities due to UXO and DU 

contamination would likely significantly reduce or eliminate impacts to cultural 

resources. Cultural resources susceptible to damage by fire could be degraded by 

high intensity fires beyond the ability of suppression forces to control or within 

areas where the suppression cannot go due to UXO and DU safety considerations. 

High intensity fires are more likely to occur under this alternative due to the 

accumulation of dead vegetation and downed woody materials (excess fuels) as a 

result of total fire suppression. 
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APPENDIX K 

 6. Visual/Aesthetics/Air Shed 

This alternative eliminates short term effects such as scorching of vegetation that 

result from smaller, and more frequent prescribed fires. Infrequent high intensity 

fires which could occur over time would result in considerable changes in the 

appearance of affected areas. Under this alternative there would be a short term 

reduction in the generation of particulate emissions from fires because of control 

actions. However, there is the potential for severe episodes of air pollution due to 

large, uncontrolled wildland fires. 

 7. Visitor Use/Safety 

There are minimal appreciable short term impacts on Refuge visitor use under this 

alternative. Visitor interpretation of the Refuge would be influenced by the unnatural 

composition of Refuge habitats. Open areas could be potentially closed to visitor use 

and access during suppression activities. Wildland fire suppression is hazardous by 

nature. The inherent safety risks associated with small fires are compounded on 

larger, high 

intensity fires, not only for firefighters, but for the public as well. Hazards include 

direct flame exposure, respiratory problems associated with smoke inhalation, and 

the use of equipment under conditions of poor visibility. 

8. Economic 

Reduction of hazardous fuels near structures and other capital improvements 

through the use of management ignited prescribed fires would not occur under this 

Alternative. Due to the build-up of hazardous fuels, the threat to capital 

improvements would be greater under this alternative than under either Alternative 

A or C. Costs associated with the suppression program steadily increase with the 

accumulation of fuel. High intensity fires potentially would be costly to suppress 

and could cause economic disruption through the loss of natural resources, capital 

improvements, visitor access opportunities, and deteriorated visitor experiences. 

The suppression program would be limited by the presence of UXO and DU 

contamination. This would reduce the ability of firefighters to directly attack the fire 

and require more costly aerial suppression. No direct or indirect economic impact 

(positive or negative) to the surrounding communities is anticipated with this or any 

other Alternative. 
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 9. Cumulative Impacts 

When reviewing the effects of a fire management program at Big Oaks NWR 

combined with effects on the environment of all burning and other sources of 

particulate matter throughout the region, cumulative impacts are minimal. No 

area within the region is a non-attainment air quality area and none are likely to 

be directly or indirectly effected to approaching a level of significance needing to 

be addressed . 

A significant increase in mature and contiguous forests would occur through 

time under this Alternative. Benefits to interior forest migratory birds and 

animals would likely occur over time. 

Significant cumulative loss of early successional habitats and would occur. This 

alternative would lead to the loss of 8,000 acres of grassland and 6,000 acres of 

other early successional habitats that currently exist within Big Oaks NWR. This 

loss when combined with the over 99% reduction in native grasslands statewide 

is significant. Furthermore, it is likely that if these grasslands are lost, it may be 

necessary to re-evaluate the status of Henslow's sparrow under the Endangered 

Species Act. Therefore, if Alternative B were to become the selected Alternative, 

the Service would prepare an Environmental Impact Statement to analyze the 

impacts of this Alternative. 

C. Alternative C - Management Ignited Prescribed Fire and Fire Suppression 

 1. Soil and Water Resources 

Due to the low frequency of naturally ignited wildland fires (every 50-1 00 years) 

anticipated under Alternative A, water quality and soil resource impacts would be 

considered the same as Alternative A. Impacts from management ignited 

prescribed fires would also be the same as Alternative A. 

 2. Vegetation and Fuels 

Impacts to vegetation and fuels would be similar to Alternative A, management 

ignited prescribed fires could help maintain historic vegetation communities and 

reduce 
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APPENDIX K 

and all other Alternatives. Two historic structures adjacent to, and surrounded by, the 

Refuge are not likely be effected in all but the most extreme fire situation. The use of 

management ignited prescribed fires under this Alternative would reduce fuels and lessen 

the chance of an extreme fire occurring. The effects of suppression activities on cultural 

resources would be avoided under this and all other Alternatives evaluated due to the 

limited disturbance imposed by UXO and DU safety considerations. 

 6. Visual! Aesthetics! Air Shed 

Areas with sensitive visual resources could be protected from fire and certain 

fire suppression activities under this alternative. Some visual changes would 

occur under this 

alternative, but lower intensity management ignited prescribed fires would result 

in minimal changes to visual aesthetics. Alternatives A and C provides a slightly 

higher degree of air quality management owing to the ability to schedule 

management ignited prescribed fires to coincide with periods of acceptable 

smoke ventilation to minimize impacts to roadways and developed areas. The 

direction of wind vector selected will be such that smoke and other particulate 

emissions are transported away from sensitive areas. Short term smoke episodes 

would still be possible under this alternative, but fuel reduction through 

management ignited prescribed fires would greatly reduce episodes of severe air 

pollution due to large, uncontrolled wildland fires. 

 7. Visitor Use/Safety 

This alternative may entail some disruptive effects to Refuge visitors. Operational 

activities could limit visitor use and access to open portions of the Refuge. Smoke 

production could detract from visual enjoyment and further restrict access on public roads 

and trails. Activities associated with management ignited prescribed fire can normally be 

accomplished in a safe manner through pre-planning and scheduling of work tasks. Fires 

are ignited in a predetermined pattern and are generally of low to moderate intensity. 

Hazards associated with suppression of wildland fires remain the same as those 

associated with Alternatives A and B. 
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APPENDIX K 

 

8. Economic 

 

Reduction of hazardous fuels near structures and other capital improvements 

would reduce potential economic losses from a catastrophic fire. Use of 

management ignited prescribed fires would minimize the risk of escaped fires due 

to the preplanning process associated with prescribed burning. Costs of 

management ignited prescribed fires is comparable to Alternative A. No direct or 

indirect economic impact (positive or negative) to the surrounding communities is 

anticipated with this or any other Alternative. 

 

9. Cumulative Impacts 

 

When reviewing the effects of a fire management program at Big Oaks NWR 

combined with effects on the environment of all burning and other sources of 

particulate matter throughout the region, cumulative impacts are minimal. No area 

within the region is a non-attainment air quality area and none are likely to be 

directly or indirectly effected to approaching a level of significance needing to be 

addressed. 

 

Cumulative impacts for this alternative is the same as Alternative A. No 

cumulative loss of early successional habitats or contiguous forest would result at 

Big Oaks NWR or within the state or region from implementation of this 

Alternative. This alternative strives to maintain the 8,000 acres of grassland and 

6,000 acres of other early successional habitats that currently exist within Big 

Oaks NWR. 
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APPENDIX K 

D. Summary of Environmental Consequences by Alternative 

 Alternative A Alternative B Alternative C 

 (proposed Action) (No Action) 

Soil and Water Minor short-term No short term impacts Minor short-term 

Resources impacts from impacts from 

 prescribed fires prescribed fires 

Vegetation and No change from Gradual increase in size of No change from 

Fuels current condition is vegetation and fuels and current condition is 

 expected. A more possible severe fire activity expected 

 natural landscape will 

 result from natural 

 wildland fires. 

Wildlife No immediate change Gradual elimination of No change from 

 from current condition species that depend on current condition is 

 is expected. A more early successional expected 

 natural assemblage of vegetation. 

 species will result 

from 

 natural wildland fires 

 over time. 

Endangered and No change from Gradual reduction in No change from 

Threatened Species current condition is suitability of habitat for M current condition is 

 expected sodalis. expected 

Cultural Resources No change from No change from current No change from 

 current condition is condition is expected current condition is 

 expected expected 

Visual/Aesthetics! Impacts would be Periodic extreme fire No change from 

Air Shed variable and events could cause impacts current condition is 

 unpredictable but not to visual/aesthetics/air expected 

 as extreme as shed. 

 Alternative B. 
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APPENDIX K 

 Alternative A Alternative B Alternative C 

 (proposed Action) (No Action) 

Visitor Use/Safety Greater safety to Increased risk to Increased risk to 

 firefighting personnel firefighting personnel but firefighting 

 than other Alternatives no change in visitor use personnel but no 

 and no change in expected. change in visitor use

 visitor use expected. expected. 

Economic Lower risk to Increased risk to Refuge Lower risk to 

 structures on the structures due to build-up structures on the 

 Refuge. No economic of dangerous fuels. No Refuge. No 

 impact off Refuge. economic impact off economic impact 

 Refuge. off Refuge. 

Cumulative Impacts No change from Significant increase in Same as Alternative

 current conditions. contiguous forest. A 

 Significant reduction in 

 valuable early successional 

 habitats on the Refuge and 

 across the state. 

V. List of Preparers 

Steve Miller, 1661 W JPG Niblo Rd. Madison, IN 47250 

VI. Coordination and Consultation With the Public and Others 

During the preparation of the Big Oaks NWR's FMP and this EA, consultation and coordination 

occurred between this office and numerous state and federal agencies. Endangered Species intraService Section 7 consultation was completed concurrently with the review of this EA by the 

public. The Intra-Service Section 7 Consultation is now complete and no changes were needed to 

the FMP or the EA 
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APPENDIX K 

Maintaining a good working relationship with various agencies in Indiana is essential to the 

overall fire management program. Throughout the planning stages of this document, the Service 

was in direct contact many organizations. The following agencies were given and asked to 

comment on preliminary drafts of the FMP and EA: 

U.S. Army 

U.S. Fish and Wildlife Service's Ecological Services Office at Bloomington, 

Indiana Hoosier National Forest 

Indiana Department of Natural Resources Division of Forestry 

Indiana Air National Guard 

 New Marion Volunteer Fire Department 

Through these contacts, during the planning and writing process, the Service was able to identify 

the concerns of these agencies and, where possible, incorporate their concerns and suggestions 

into this document. 

This EA was made available for public comment from January 30 through March 1,2001. We 

received one response from Save The Valley, Inc. and their letter is attached. Changes were 

made to this EA in response to their letter in order to clarify our actions. A summary of these 

changes is included in our response to their letter in Attachment 1. These changes were not 

considered significant and therefore a second draft of this EA was not made available for public 

comment prior to the final EA being adopted. 
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APPENDIX K 

SECTION VII 

Comments Received 
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APPENDIX K 

Response to Comments 

Save The Valley

1. Comment noted. Prior to including these areas within our management ignited prescribed 

fire areas, we reviewed data available on DU and DU/fire interactions and asked Fish and 

Wildlife Service environmental contaminant specialists to examine this same data. Based 

upon allowable exposure thresholds and data available on DU and DU/fire interactions it 

was determined that, even using conservative risk scenarios, fire was unlikely to increase 

DU exposure to fire personnel or the environment to a level approaching significance. 

Given this data and the fact that no new data was presented we have not changed our 

proposed burn boundaries. 

2. We have included a citation (Williams et. al. 1998) in this final EA for a study on the 

dispersion and 

therefore possible human exposure of DU associated with fires. Current data available 

suggests that levels of DU carried in smoke associated with burning natural vegetation is 

not significant This is the only study we know of that looks at dispersion of DU in smoke 

in a setting similar to the conditions that are found on the refuge. Exposure of fire 

personnel would be limited due to the safety constraints associated with UXO. Fire 

personnel leave the area immediately following ignition and then only return on a 

periodic basis for monitoring. 

3. We have included text within the EA indicating that we are not proposing to conduct burns within 

the DU area this year (200 1). Provided no new data is made available demonstrating a significant 

risk (or a risk approaching significance) to the public, fire personnel or the environment, we 

propose burning in areas containing DU in the future to maintain valuable habitat. The Service 

has requested that the U.S. Anny and the Nuclear Regulatory Commission review the affects of 

fire and DU specifically for refuge activities in any future environmental reviews concerning DU. 

This is to ensure that we are provided the most up-to-date information regarding DU. We would 

encourage all parties to make available internal data on DU and fire that they may have in order 

for us to make the most informed decision possible 

4. Comment noted. For the reasons explained in 1-3 above and given no new data presented we 

 have not changed our proposed bum boundaries to exclude the DU area. 
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APPENDIX L 

INTRA-SERVICE 

SECTION 7 CONSULTATION 

INTRA-SERVICE SECTION 7 EVALUATION FORM 
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Originating Person: Steve Miller 

Telephone Number: (812) 273-0783 

Date: January 25, 2001 

I. Region: 3 

II. Service Activity: Refuges and Wildlife 

III. A. Listed species and/or their critical habitat. 

Indiana bat (Myotis sodalis). No critical habitat. 

 bald eagle (Haliaeetus leucocephalus). No critical habitat. 

B. Proposed species and/or proposed critical habitat. NOT APPLICABLE 

C. Category 1 candidate species. NOT APPLICABLE 

D. Include species/habitat occurrence on a map. All forested and palustrine areas shown 

on the vegetation map (Figure 2) may provide summer habitat for M sodalis and suitable habitat 

for H leucocephalus. 

IV. Geographic area or station name and action. Big Oaks National Wildlife Refuge (NWR), Madison, 

Indiana. This consultation is in support of the Proposed Action identified within the Environmental 

Assessment (EA) (Appendix K) for the Fire Management Plan at Big Oaks NWR. 

V. Location: 

A. County and State: Jefferson, Ripley and Jennings Counties, Indiana (Figure 1). 

B. Section, township, and range: All or portions of: 

T7N R9E SEC 24 and 25; 

T7N R10E SEC 14, 15, 16, 17, 18, 19,20,21,22,23,26,27,28,29,30,31,32,33,34 

 and 35 

T6N RI0E SEC 2, 3,4,5,6, 7, 8, 9, 10, 11, 12, 14, 15, 16, 17, 18, 19,20,21,22,23,26, 

 27,28,29,30 and 31 

T5NR1OESEC2,3,4,5,6, 7,8,9,10,11,14,15,16,17,18,19,20,21,22,23,26,27, 

 28,29,30,31,32,33,34 and 35 

C. Distance (miles) and direction to nearest town: Holton is 1 mile north and Madison is 

4miles south of the Refuge
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VI. Action objectives: 

This proposal entails adopting the Proposed Action as outlined within the EA prepared for the Fire 

Management Plan for Big Oaks NWR. The Fire Management Plan will be used to guide future fire 

suppression and prescribed fire management efforts at Big Oaks NWR. Following the completion of this 

consultation and based on the evaluation of public comments on the EA, the Regional Director (Region 3) 

of the Fish and Wildlife Service may make a Finding on No Significant Impact (FONS!) determination 

and adopt the Proposed Action. The Regional Director may also select one of the other alternatives as 

presented in the EA or to select an entirely new alternative that was not developed for the EA. Should an 

Alternative other than the Proposed Action be selected a new consultation would be required. 

VII. Determination of effects: 

 A. Explanation of impacts of action on listed species/critical habitat 

 1. M. sodalis at Big Oaks National Wildlife Refuge 

The U.S. Fish and Wildlife Service (Service), Bloomington Field Office, surveyed bats 

on what was the Jefferson Proving Ground and is now Big Oaks NWR during the 

summers of 1993, 1994 and 1995. In 1998, 1999 and 2000, bat surveys were conducted 

by Service staff stationed at Big Oaks NWR. Documenting the presence or absence of 

populations of Indiana bats was the primary objective of our survey efforts from 1993-

1995 and 1998-2000. Twenty sites were surveyed during the 6-year period throughout the 

50,000 acre Refuge (Figure 9). 

A total of 626 individuals representing 7 species of bats, including Indiana bats, was 

captured on Big Oaks NWR during the 6-year survey. Sites at which Indiana bats were 

captured were distributed throughout the Refuge. 

At Big Oaks NWR, 27 of35 Indiana bats captured were adult females or juveniles, and 

the rernaining 8 were adult males. We estimate that Big Oaks NWR supports a minimum 

of 6 Indiana bat maternity colonies; colonies are distributed across the Refuge. This is a 

conservative estimate; additional mist netting would likely yield evidence of additional 

maternity colonies. 

Indiana bats were captured at 50% of the sites sampled on Big Oaks NWR at a rate of 

0.19 Indiana bats per net night. Brack (1983) captured Indiana bats at 33% of riparian 

sites sampled at a rate of.36 bats/net night during 3 years ofrnistnetting in Indiana. 

Whitaker (1994) captured 1 Indiana bat in 10 net nights (1 net night at each of 10 

different sites) in Jennings County. Capture rates can not be used to estimate population 

size. However, the capture rates and the fact that captures were well distributed across the 

property suggests that Big Oaks NWR provides a concentration of suitable Indiana bat 

summer habitat. 
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Fourteen adult Indiana bats were fitted with radio transmitters during the 6-year 

study period. Radio-tagged bats included 10 reproductive females, 3 

nonreproductive female, and a male. Roost locations of radio-tagged bats were 

determined to the extent feasible; some were located in restricted areas or never 

located. We were able to identify 10 roost trees (for the other bats, we were only 

able to determine a general roost tree location or they were never relocated). Roost 

trees identified on Big Oaks NWR included 2 black locusts (dead), 4 American 

elms (dead), 3 shagbark hickories (live), and 1 red maple (dead). 

 Indiana bat roosts are ephemeral, frequently associated with dead or dying trees. 

Most roost trees may be habitable for only 2-8 years (depending on the species 

and condition of the roost tree) under natural conditions. Gardner et al. (1991) 

evaluated 39 roost trees and found that 31% were no longer suitable the following 

summer, and 33% of those remaining were unavailable by the second summer. A 

variety of suitable roosts are needed within a colony's traditional summer range 

for the colony to continue to exist (Kurta et al. 1993). Bats move among roosts 

within a season and when a particular roost becomes unavailable from one year to 

the next. It is not known how many alternate roosts must be available to assure 

retention of a colony within a particular area. 

Callahan (1993) noted: "Larger forest tracts probably increase the chances that a 

suitable range of roost trees will be present in the stand. Large forest components 

also provide an additional benefit to a philopatric species that uses an ephemeral 

resource (snags) for roosting." Kurta et al. (1996) noted that a relatively large 

area is needed to meet the roosting requirements of Indiana bats; young, highly 

fragmented forests, typical in the midwestern United States, can not meet these 

requirements. Big Oaks NWR is the largest forested block available to Indiana 

bats over a large geographic area. The availability of roost trees on Big Oaks 

NWR was not quantitatively evaluated. However, based on visual inspection, 

most areas of Big Oaks NWR appear to provide a good supply of potential roost 

trees. In the immediate area of all of the roost trees which were identified, there 

were numerous potential alternate roost trees. 

Impacts of the Fire Management Plan Proposed Action on M sodalis at Bit:! 

Oaks NWR

Based upon 1997 aerial photo data, there are 34,000 acres of total forested area 

on Big Oaks NWR. It is anticipated that implementation of the Fire Management 

Plan will not negatively impact the relative abundance of forests on the Refuge. 

The establishment of the refuge combined with implementation of the proposed 

FMP is likely to increase areas of interior forest. Wildland or management 

ignited prescribed fires will most likely bum some understory vegetation, but it is 

not expected to be intense enough to kill overstory trees. Due to the presence of 

unexploded ordnance within the bum units, we are unable to control fire spread 
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to forested habitats within individual areas. We are also unable to evaluate fuel 

levels adjacent to and within forested areas to determine the likelihood of spread 

into these areas. Suppression efforts, if any are required, would confine or 

contain a wildland or management ignite prescribed fire to a designated unit 

through the use of natural (e.g. creeks) and man-made (e.g. roads) features.

Implementation of the Proposed Action is not likely to adversely affect M 

soda/is. Of the 10 Indiana bat roost tree locations which were identified on Big 

Oaks NWR, 4 were in areas which have been repeatedly burned by the Army. 

Although detailed fire histories of these areas are not available, we do know that 

most areas of the Refuge have been repeatedly burned by the Army since 1980 

and it is likely that these areas have been periodically burned for several decades. 

Through radio telemetry we discovered 2 roost trees used by an Indiana bat 

maternity colony in July 1998 that were within an area burned in March 1998. 

We conclude that the burning of these areas did not destroy Indiana bat roosting 

habitat. 

Conditions for roosting and foraging bats may be enhanced by periodic fires. 

The forested stands on Big Oaks NWR which have been periodically burned are 

typically characterized by an open understory. Forest stands with a closed 

canopy and open understory are considered favorable for Indiana bat foraging 

habitat. Some of these burned areas also tend to have large, widely scattered 

trees, a condition which may be conducive to the development of roost trees. 

Callahan (1993) found that most primary roosts were snags in open-canopy 

situations. 

 2. H. leucocephalus at Big Oaks National Wildlife Refuge 

Based upon 1997 aerial photo data, there are 34,000 acres of total forested area on 

Big Oaks NWR. It is anticipated that implementation of the Fire Management 

Plan will not negatively impact the relative abundance of forests on the Refuge. 

The establishment of the refuge combined with implementation of the proposed 

FMP is likely to increase areas of interior forest over time. Wildland or 

management ignited prescribed fires in forested areas will most likely burn some 

understory vegetation, but it is not expected to be intense enough to kill overstory 

trees. Due to the presence of unexploded ordnance within the burn units, we are 

unable to control fire spread within forested habitats. We are also unable to 

evaluate fuel levels adjacent to and within forested areas to determine the 

likelihood of spread into these areas. Suppression efforts, if any are required, 

would confine or contain a wildland or management ignited prescribed fire to a 

designated unit through the use of natural (e.g. creeks) and man-made (e.g. roads) 

features. 

No surveys have been conducted specifically for H. leucocephalus on Big Oaks 

NWR. The Refuge is outside of the State of Indiana's annual H. leucocephalus 
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aerial survey area. The Refuge staff have reported the presence of H. 

leucocephalus at Old Timbers Lake during winter periods when the lake was 

ice-free (1998 and 1999) and along an ice-free stream during late-winter periods 

(1999). All sightings have been of immature birds. No adult H leucocephalus 

have been observed nor have any H. leucocephalus been observed during the 
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APPENDIX M 

BIBLIOGRAPHY 
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APPENDIX M 

BIBLIOGRAPHY 

Baker, S. 1990. For Defense of Our Country: Echoes of Jefferson Proving Ground. Guild 

 Literary Services, Indianapolis. 

Brack, V., Jr. 1983. The nonhibernating ecology of bats in Indiana with emphasis on the 

endangered 

 Indiana bat, Myotis sodalis. Ph.D. dissertation, Purdue Univ., West Lafayette, Ind. 280pp. 

Brasser, T. J. 1978. Early Indian-European Contacts. In Northeast, edited by B. G. Trigger, pp. 

78-88. Handbook of North American Indians, Vol. 15, W. C. Sturtevant, general editor. 

Smithsonian Institution, Washington, D.C. 

Callahan, E.Y., III. 1993. Indiana bat summer habitat requirements. M.S. Thesis. University of 

 Missouri Columbia. 84pp. 

Gardner, J.E., J.D. Garner, and J.E. Hofmann. 1991. Summer roost selection and roosting 

behavior of Myotis sodalis (Indiana bat) in Illinois. Final Report. Ill. Nat. Hist. Survey 

and Ill. Dep. Conserv., 56pp. 

Hawkins, R A., and Scott A. Walley. 1995. Chert Source and Phase I Archaeological Surveys 

on the u.s. Army Jefferson Proving Ground, Jefferson. Jennings, and Ripley Counties, 

Indiana. Draft Report. Algonquin Archaeological Consultants, Inc., Cincinnati. 

Hunter, W. A. 1978. History of the Ohio Valley. In Handbook of North American Indians, 

Vol. 15: NE, edited by B. G. Trigger, pp. 588-593 (Series editor W. C. Sturtevant). 

Smithsonian Institution, Washington, D.C. 

Kurta, A., D. King, J.A. Teramin, J.M. Stribley, and K.J. Williams. 1993. Summer roosts of the 

endangered Indiana bat (Myotis sodalis) on the northern edge of its range. .Amer. 

Midland Nat. 129:132-138. 

Kurta, A., K.J. Williams, and R Mies. 1996. Ecological, behavioral, and thermal observations of 

a peripheral population of Indiana bats (Myotis sodalis). Pages 102 117 in RM.R Barclay 

and RM. Brigham, eds. Bats and Forests Symposium. Research Branch, British 

Columbia Ministry of Forests, Working Paper 23:1-292. Victoria, British Columbia, 

Canada. 
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APPENDIX M 

Mbutu, S., P. Waite, D. Peter, and F. Largent. 1996. Jefferson Proving Ground Cultural Resources 

 Management Plan. U.S. Army Corps of Engineers, Louisville, Kentucky. 

Muncie, E. O. 1932. A History of Jefferson County Indiana. Unpublished Master's thesis, 

Indiana 

 University. Bloomington. 

Leland, H., D. Goldberg, R. Calli, and R. Besel. 1956. History of Jennings County, Indiana. 

Peckham, H. H. 1978. Indiana: A Bicentennial History. W. W. Norton, New York. 

Pruitt, Lori, S. Pruitt, M. Litwin. 1994. Jefferson Proving Ground Fish and Wildlife Management 

 Plan. U.S. Fish and Wildl. Ser., Bloomington, Ind. 

Stafford, C. R., and M. Cantin. 1992. Test Excavations at the Poffey Creek in the Ohio River 

Valley, Harrison County, Indiana. Technical Report No. 11, Anthropology 

Laboratory, Indiana State University. Terre Haute. 

United States Army. 1996. Jefferson Proving Ground Cultural Resources Management Plan. Ft. 

 Worth, Texas. 344 pp. 

Whitaker, J.O., Jr. 1994. Survey of bats and search for endangered bat species, particularly the 

Federally endangered Indiana bat (Myotis sodalis) and the State endangered evening 

bat (Nycticeius humeralis), in the area of the proposed Zenas Lake project along the 

Muscatatuck River in Jennings County, Indiana. Report to Algonquin Consultants, Inc. 

20pp. 

Williams, G.P., A.M. Hermes, A.J. Policastro, H.M. Hartmann, and D. Tomasko. 1998. 

Potential Health Impacts from Range Fires at Aberdeen Proving Ground, Maryland. 

Argonne National Laboratory, Argonne, IL.84 pp. 

United States Fish and Wildlife Service. 1999. Agency Draft Indiana Bat (Myotis sodalis) Revised 

 Recovery Plan. Fort Snelling, Minnesota. 53 pp.