INTERAGENCY FIRE PROGRAM MANAGEMENT QUALIFICATIONS STANDARDS AND GUIDE PROGRAM COMPLEXITY

INSTRUCTIONS AND GUIDING PRINCIPLES FOR USE OF

THE COMPLEXITY DESCRIPTORS

The process to determine program complexity ratings for units with wildland fire responsibilities 

is accomplished by reviewing eight major program elements. These elements are composed of 

sub-elements, each of which are individually evaluated. These eight elements and their subelements are: 

Program Management: (ten sub-elements)

Fire Season 

Budget 

Logistics 

Workforce Management 

Program Objectives 

Planning 

Contracts 

Agreements/Cooperators 

Multi-Unit Responsibility 

Social/Political/Economic Concerns 

 Preparedness: (six sub-elements)

Training and Qualifications 

Initial Attack Dispatch Office 

Caches 

Support to Other Units 

Fuels and Fire Danger 

Fire Resource Modules 

 Program Interdependence: (one sub-element)

Consequences of the Outcome of One Program Activity on Another 

 Land Management Base: (four sub-elements)

Total Acres Managed 

Ownership Pattern 

Wildland/Urban 

Cultural/Natural Resources 

 Wildland Fire: (seven sub-elements)

Average Annual Wildland Fire Occurrence 

Average Annual Wildland Fire Acres Burned 

Length of Wildland Fire Season 

Values to Be Protected 

Wildland Fire Management 

Firefighter and Public Safety 

Fuels and Fire Behavior 

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Prescribed Fire/Fuels Management: (six sub-elements)

Prescribed Fire (three sub-elements)

Prescribed Fire 

Multiple Ownership/Multiple Jurisdictions 

Burn Season Length 

 Mechanical (three sub-elements)

Treatment Objectives 

Implementation 

Values to Be Protected 

 Aviation: (one sub-element)

Aviation 

 Prevention and Education: (two sub-elements)

Prevention 

Wildland Fire Education 

Elements and sub-elements are given weighted values, depending on: 

An element’s importance to the overall program, and its subordinate sub-elements’ 

relative importance within that element. 

When evaluating the complexity of a unit’s program, a manager identifies the most accurate of 

the appropriate narrative descriptors, then assigns numerical ratings of 0-5 to each sub-element. 

 

• A “0” indicates that the sub-element doesn’t apply. 

• Scores of “1”, “3” and “5” are assigned when the unit falls squarely within the 

narrative descriptors. 

• Scores of “2” and “4” are assigned only when it is clear that a unit’s accurate 

description would more reasonably fall between the narrative complexity descriptors. 

Using the Excel spreadsheet greatly simplifies the calculations. Entering the sub-element scores 

onto the spreadsheet automatically calculates the total raw score. The raw score then determines 

the program complexity level. Complexity score ranges are as follows: 

Low Complexity (1) = 10 - 2995 

Moderate Complexity (2) = 2996 - 5991 

High Complexity (3) = 5992 - 7490 

Manual Calculation Instructions 

Step 1. Assign a score, 0-5, to each sub-element within an element. 

Step 2. Multiply the sub-element score for each sub-element by the Sub-element 

Weighting Value. 

Step 3. Add the sum of all products obtained in Step 2, for a total sub-element 

score. 

Step 4. Multiply the total sub-element score obtained in Step 3 by the Element 

Weighting Value. This product is the sub-total score for that element. 

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Step 5. Perform Steps 1-4 for all eight elements. 

Step 6. Add the sum of all eight element total scores for the Grand Total Points. 

Step 7. Compare the Grand Total Points to the above complexity score ranges to 

determine the complexity level of the unit being evaluated. 

 

See example, pp 7 & 8 

NOTE: 

Determination of program complexity in turn determines the complexity of the Fire Program 

Manager’s position (and resultant grade, competencies, etc.). It does NOT necessarily determine 

the complexity of subordinate positions that have variable complexity, such as the Prescribed 

Fire/Fuels Specialist, Fire Prevention & Education Specialist, and Operations Specialist. Those 

complexities (and resultant grades, competencies, etc.) are determined by the relative complexity 

of that sub-program within the overall fire management program. The appropriate complexity 

elements identified in the Complexity Descriptors may assist in making those determinations, but 

in and of themselves may not be the sole determinants, if, for example other fire duties are 

included in a Specialist’s position description. 

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GUIDING PRINCIPLES 

There were numerous assumptions that became guiding principles in the development of the 

complexity descriptors. It is imperative that these be fully understood prior to completing an 

analysis of a unit’s fire program complexity! 

The listing of guiding principles below is not in priority order- each are equally important. 

1. Descriptors are worded such that the maximum level of complexity for the “low” category 

is described, and the minimum level of complexity for the “high” category is described. 

2. Strong effort was made to be consistent with the 1995 Federal Wildland Fire Policy and 

Program Review terminology and philosophy. 

3. Appropriations language (DOI and Related Agencies Appropriations Act) guided direction 

of what sub-elements were included in which elements. 

4. Numbers, where indicated in the descriptors, are initial best guess “thresholds” and likely 

require normal distribution adjustments. 

5. The complexity descriptors only address the “fire job”, not collateral or multi-functional 

duties. 

6. These descriptors only address fire management program activities, not other resource 

activities, such as timber, range, or recreation etc. 

7. Sub-element description statements are indicators only and may not be all encompassing; 

the preponderance of descriptors within a specific complexity level should be met to apply. 

8. While an effort was made to reduce redundancy, some sub-elements correctly overlap or 

are repeated in several elements. 

 

9. Competency and qualification standards must be commensurate with identified program 

complexity levels. 

 

10. Complexity is evaluated based upon the area of responsibility (geographic or otherwise) for 

the unit being rated. For example, in the Lower Colorado River, BIA, FWS, and BLM 

share fire management responsibilities. All provide fire management resources, but the 

BLM provides program management oversight, i.e. the BLM fire program manager reports 

to the three agency administrators. So, when the three agencies evaluate their respective 

programs, BLM's area of responsibility would be greater than the other two agencies'. 

 

11. For the purposes of this document the term “program activities” refers specifically to the 

following seven management areas: wildland fire management, prescribed fire 

management, fuels management, wildfire prevention/wildland fire education, preparedness, 

aviation management, and interagency operations. Do not confuse these with the eight 

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program elements that define program complexity. 

 

12. Element weighting values reflect the importance of the eight elements that determine 

program complexity. For example, "Program Management"' is rated a "10" element 

weighting value, and "Prevention/Education" is rated a "2", reflecting the relative 

importance of program management activities over prevention/education activities when 

determining the overall program complexity. 

 

13. While not a stand-alone element or sub-element, “safety” is captured in relevant program 

sub-elements throughout the document. 

14. Element weighting values do not reflect the importance of the sub-elements, but rather the 

complexity associated with that sub-element. For instance, safety is of extreme 

importance, but as a sub-element in the "Wildland Fire" element, "Firefighter and Public 

Safety" as described is of less complexity than the "Values to be Protected" sub-element. 

In other words, it is assumed that safety is built into all the elements as appropriate, but this 

sub-element in the above example deals with the extra complexity posed by safety issues. 

 

15. Program staffing and complexity ratings should be based upon Most Efficient/Effective 

Levels (MEL), not the reduced funding levels which are based upon a percentage of MEL. 

This is because the funding calculation varies annually, while MEL should remain constant 

over a period of time. 

 

16. Complexity assignments should be based upon approved management plans 

(land/resource/fire/et al), not upon future program desires. This statement is not intended 

to be in conflict with #15 above. 

 

17. A strong attempt was made at consistency in philosophy and content with the Federal Fire 

& Aviation Leadership Council (FFALC) preparedness/planning ad hoc group, and other 

agency position management task groups, such as the Forest Service R-5 Standard Position 

Description Task Group. 

 

18. Intent of these complexity descriptors is to address the broadest spectrum of program 

complexities on an interagency basis, not simply from the perspective of any one agency. 

 

19. The distribution of these interagency program complexities (L, M, H) is measured on an 

interagency basis, not on an individual agency basis. It is assumed that most programs on 

an interagency basis will fall into the “Moderate” program complexity level. 

 

20. Each individual fire program unit should be evaluated on its own merit against the 

interagency complexity standards. 

 

21. The planning function is included in the “Program Management” element. 

 

22. The training function is included in the “Preparedness” element.
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INTERAGENCY FIRE PROGRAM MANAGEMENT QUALIFICATIONS STANDARDS AND GUIDE 

COMPLEXITY RATING FOR PROGRAM MANAGEMENT This element addresses the components of managing a wildland fire program on a unit. Sub-elements addressed are fire season, budgemanagement, program objectives, planning, contracts, agreements/cooperators, multi-unit responsibility, and social/political/economic 

PROGRAM MANAGEMENT Sub-Element 

S 

W 

V 

Low 

1 

Moderate 

3 

High 

5 

Fire Season: This sub-element refers to the length of season, but primarily focuses on the presence or absence of overlapping wildland and prescribed fire seasons, including rehabilitation. 

5 Single or split season covering 

wildland fire or prescribed fire activities, but not both at the same time. No overlapping seasons. The fire program manager may be a collateral duty. 

Single or split season with both wildland and prescribed activities at the same time possible, but resource allocation is not a concern. Total season length less than 6 months. Seasons may overlap, but not significantly enough to create resource allocation conflicts. Fire program management requires a full time dedicated position, with fire management as the primary responsibility. 

Prolonged seasons (months) with prescrwildland fire incidenoccurring at the samnecessitating careful allocation. Seasons overlap and resource allocation cFire program managrequires a full time dposition, with fire mas the primary respo

Budget: This sub-element describes the complexity of managing a program budget. The overall size of the budget is not considered to be a factor. Complexity factors are the number of program activities managed, the number of 

10 Budget managed includes only 

one activity area such as wildland fire or prescribed fire. Low risk of fraud and abuse in the payment process. Incidental use of ADO or payment teams may occur, but 

Budget managed includes 2 activity areas, plus management of 1-2 contracts. Moderate risk of fraud and abuse in the payment process. Regular, local use of ADO, buying, or payment teams 

Budget managed inc2 activity areas, plus management of over High risk of fraud anthe payment processRegular local and reof ADO, buying, or 

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PROGRAM MANAGEMENT S Low Moderate High Sub-Element 

W 

V 1 3 

5 

contracts, and the risk of fraud and abuse.

expertise is not required to be on the unit. 

occurs. ADO expertise is located off the unit. 

teams occurs. ADO located on the unit. 

Logistics: This sub-element describes the factors which affect many of the operational aspects of a program: access, ability to meet predetermined response times, communication, facilities, fire cache, and support requirements.

5 Access and proximity allows time 

efficiency of operations on a oneday basis (e.g. travel within unit can be achieved within one day.) Ninety percent of unit lands are accessible with common forms of transportation/equipment (e.g. engines, pickups, dozers, tractor/plows). Initial response times to meet management objectives are easily met with available resources located at permanent work stations. Very little, if any, reliance on outside support to meet unit objectives for wildland and/or prescribed fire needs. No unusual communication problems. Single frequency radio communications with permanent repeaters provides adequate radio coverage. No fixed detection lookouts on the unit. Detection needs met by regularly scheduled aerial observation during periods of high fire danger. 

Access and proximity allows time efficiency of operations on a oneday basis (e.g. travel to/from units can be achieved within one day.) Eleven to 25 percent of the unit is not accessible with common forms of transportation/ equipment, necessitating the use of aerial delivery systems and/or long hikes to incident sites (over 2 hour hikes). Competition for available resources results in the potential for some unit objectives in wildland and/or prescribed fire to not be met. Outside support required to meet unit objectives. Single frequency radio communication with permanent repeaters provides radio coverage over 80% of the unit. "Dead spots" require use of additional radio communication equipment. 1-2 Detection lookouts. Detection needs met by a combination of fixed lookouts and aerial observation. 

Access and proximity time efficiency of opeone-day basis (e.g. traunits cannot be achievone day.) Over 25 percent of unaccessible by aerial dsystems, or long hikesites (over 2 hour hikInitial response times management objectivdifficult to meet. Durbusts”, resource allocwildland fire starts is incident prioritizationincidents not receivinfor up to 24 hours. Unit requires 3 or mofrequencies to accomnormal radio traffic. dead spots in radio corequire additional radcommunication equipMore than 2 staffed dlookouts. Detection na combination of fixeand aerial observation

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PROGRAM MANAGEMENT Sub-Element 

S 

W 

V 

Low 

1 

Moderate 

3 

High 

5 

Logistics: continued 5 No remote work stations. 

Fire cache stocked to supply normal unit strength. Duration of fire support personnel is less than one week. 

1-2 remote work stations Fire cache stocked to normal unit strength, plus additional 20 persons. Duration of fire support personnel is between 1 and 2 weeks. Logistical position may be assigned 

More than 2 work sirequire support. Peraviation facilities locunit, (e.g. helibase obase. Do not count 100 person fire cachpermanently located or a mobile fire cachon the unit during pehigh fire danger. Duration of support greater than 2 weekslogistical positions a

Workforce Management: This sub-element includes supervision, coaching, training, motivation, evaluation, qualification/certification, etc. of the workforce. It is described in terms of number and type of employees supervised and whether or not they are working in one or more program activities. It is assumed that if one is 

10 First line supervision of up to 7 

employees. Employees limited to single program activity. This does not include aviation. May manage larger number of employees for less than 90 days, for specific 

First line supervision of up to 7 employees. Employees work in 2-3 program activities. This may include aviation. May manage larger number of employees for 90 to 180 days, for specific projects/incidents, 

Provides leadership program supervisors to directly supervisinnon-supervisory empEmployees work in program activities. May manage larger employees for more days, for numerous p

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PROGRAM MANAGEMENT S Low Moderate High Sub-Element 

W 

V 1 3 

5 

supervising a number of employees in a single program activity, that necessary coaching, training, motivation evaluation, qualification/certification, etc. will be less “complex” than if the same number of employees are working in more than one program activity. 

projects/incidents, e.g. temporary employees assigned to the unit, or firefighters detailed in for a wildland or prescribed fire project. No union involvement on the unit. 

e.g. temporary employees assigned to the unit, or firefighters detailed in for a wildland or prescribed fire project. May have a non-active union on the unit. 

incidents, e.g. tempoemployees assigned or firefighters detailwildland or prescribproject. An active union is o

Program Objectives: This sub-element describes the nature of program objectives, (e.g. simple, non-conflicting objectives, or complex objectives which may conflict with one another), and their influence on the program complexity.

10 Few program objectives, e.g. 

simple suppression or prescribed fire program. Non-complex objectives, e.g. not controversial in nature, easily implemented. Non-conflicting objectives, e.g. objectives mutually supportive. 

Several program objectives. Objectives are complex, and may be externally or internally controversial, but not both. Few objectives in direct conflict. 

Numerous program Objectives are compnature, e.g. externallinternally controversmany, varied, expenresources to implemSeveral objectives aconflict, e.g.: 

• air quality vs

implementatprescribed fior 

• endangered s

habitat protehazard fuel r

• hazard fuel r

watershed pr

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PROGRAM MANAGEMENT S Low Moderate High Sub-Element 

W 

V 1 3 

5 

Planning: This sub-element refers to the level of planning required to meet agency/interagency requirements: the number of program activities involved within the planning process, the relation of the planning process to the unit objectives, and the potential conflicts which may affect the planning process.

2 Program planning confined to 

one activity, such as prescribed fire. Fire program manager provides input into overall land management process, but not as a part of the interdisciplinary team. Unit fire management plan is based on non-conflicting objectives, with little or no social/political/economic concerns. The wildland or prescribed fire portion of the program is noncontroversial. Public involvement is supportive of the affected activity. 

Program planning covers two activities. Does not meet the criteria for either low or high. Does not meet the criteria for either low or high. 

Program planning comore program activiUnit level land manaplanning, including requirements, requirparticipation of the fmanager as a membeinterdisciplinary teamDue to the complexinumerous conflictinobjectives, and high social/political/econconcerns, the unit firmanagement plan is detailed. Especially to identification of fmanagement units, aappropriate managemresponse to wildland ignitions. The wildland and prportions of the progrunder intense scrutinNumerous attempts involvement are reqarrive at consensus. 

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PROGRAM MANAGEMENT Sub-Element 

S 

W 

V 

Low 

1 

Moderate 

3 

High 

5 

Planning: continued Individual project plans are 

rated as low to moderate in complexity, using the agency approved method of project evaluation. No more than 25% of the project plans are rated at moderate complexity. Appropriate management responses, described within the approved fire management plan, are easily determined due to the non-conflicting objectives for the unit. NEPA process simple, leading to Categorical Exclusion or EA/FONSI. 

Does not meet the criteria for either low or high. Does not meet the criteria for either low or high. NEPA process requires the completion of an EA most of the time, but rarely requires an EIS. 

Individual project plrated at moderate to complexity, using thapproved method of evaluation. More ththe project plans are high complexity. Appropriate manageresponses, described approved fire managare difficult to determthe nature of the multidirectional, (mconflicting objectiveimplemented, the apAMR will require inmonitoring to ensure program objectives aNEPA process requicompletion of an EIthe time. 

Contracts: This sub-element references financial contracts, but does not include financial exchange resulting from Memoranda of Agreement.

2 None or very few emergency 

equipment rental agreements (EERAs) exist. If some are in place, they are seldom used on an annual basis, and are very simple in nature, e.g. no callwhen-needed contracts are 

Several emergency equipment rental agreements used annually. Call-when-needed (CWN) contracts are used annually. 

Numerous EERAs aannually, some or mwhich are complex i(e.g. combination refor extended emergeoperations). Call-whcontracts are used an

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PROGRAM MANAGEMENT S Low Moderate High Sub-Element 

W 

V 1 3 

5 

used. One fixed wing point-to-point and/or detection contract may be in place. No other exclusive use contracts are present. No contracts with other fed/state/tribal/local jurisdiction to provide fire management services for them (e.g. preparedness, suppression, prescribed fire, aviation) May receive and manage a limited number of contracted services annually, (e.g. suppression or hazard fuels reduction), usually of the same type. 

One exclusive use aviation contract, either fixed or rotor wing. This contract would be in addition to a fixed wing point-to-point/detection contract. One contract with point-to-point/detection services, plus additional services meets the intent of this criteria. May contract with other fed/state/tribal/local jurisdiction to provide fire management services for them, usually only one type of service. May receive and manage several contracted services annually, often not of the same type (e.g. mechanical thinning, crew and/or engine, prescribed fire planning or implementation, aerial reconnaissance. 

Manage two or more use aviation contracFrequently contracts federal/state/tribal/lojurisdictions to provmanagement serviceoften for multiple tyservices. Annually receives annumerous contracted often of multiple typmechanical thinningfire, aerial reconnais

Agreements/Cooperators: This sub-element addresses agreements to include financial 

5 Occasional informal operations 

with cooperators; may have formal agreements established 

Frequent operations with cooperators under formal agreements, some of which may 

Frequent continual owith cooperators undagreements, many o

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PROGRAM MANAGEMENT S Low Moderate High Sub-Element 

W 

V 1 3 

5 

exchanges resulting from Memoranda of Understanding and cooperators. Does not include contracted services. 

such as mutual aid agreements.  Usually have no formal Memoranda of Agreement established which requires exchange of funds for services. Agreements are simple in nature, e.g. a single payment at the beginning of a year for a service. Memoranda of Understanding are simple in nature, limited to initial attack or prescribed fire operations. 

be Memoranda of Agreements requiring exchange of funds. Agreements are not complex and fairly limited in scope, e.g., mutual aid for one operational period only, or assist in prescribed fire operations periodically. Memoranda of Understanding include both prescribed fire and initial attack operations. 

Memoranda of Agrerequiring exchanges Agreements are comhave high degree of scope, e.g. agreemeninitial and extended extended prescribed prescriptive wildlanoperations. Memoranda of Undecover the full range and prescribed fire o

Multi-Unit Responsibility: This sub-element addresses complexity incurred from having to manage more than one "piece of ground", possibly under more than one jurisdiction. 

10 Responsible for single 

continuous land base, all of one jurisdiction. 

Responsible for multiple units, all within the same jurisdiction 

Responsible for mulwithin multiple juris

Social/Political/Economic: This sub-element addresses the outside influences which affect the complexity of a fire program. Outside influences, 

10 Program not controversial in 

nature (internally or externally). 

Program not controversial in nature. May be internal or external conflicts, but they are easily resolved. 

Program has potenticontroversial in natuinternal and/or exterconflicts. Conflicts easily resolved. 

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PROGRAM MANAGEMENT S Low Moderate High Sub-Element 

W 

V 1 3 

5 

especially those that are in conflict with program objectives and/or each other, raise the complexity of the overall program. 

Low or restricted visitor use during normal operating season.  No wildland/urban intermix. Few opportunities for public safety to be compromised. Minimal air quality issues, or similar issues, such as T&E species, high value watersheds, etc. None or very few influences involved that would constrain or add complexity to the program. News media coverage is limited to infrequent prepared news statements and releases. 

Public access and safety may be a concern during short periods of time when fire danger indices exceed very high. Sensitive issues such as air quality, T&E species, high value watersheds, wildland/urban intermix, etc. may be present, but provide only minor constraints or complexity to the program. Some political activity present related to the burning program. News media coverage limited to frequent or regularly scheduled prepared statements and releases. 

Public access and samajor concern, due tvisitor use, and/or wildland/urban interSensitive issues such quality, T&E specievalue watersheds, wildland/urban intercultural resources, ecombine to add extreconstraints or complprogram. Political activity relatotal fire managemenis present, and potenaffects day to day opConsiderable media exists. News media includes prepared stand releases, and tapinterviews. 

Social/Political/Economic: continued 

10 Public contacts consist of the 

establishment and maintenance of a “visitor” bulletin board, with handout brochures, etc. An occasional individual 

Public contacts consist of individual contacts and an occasional public presentation at (as an example) a school. 

Public contacts consindividual and group (e.g. a town meetingthe controversy surrprogram, many cont

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PROGRAM MANAGEMENT S Low Moderate High Sub-Element 

W 

V 1 3 

5 

contact may be made, but these occur infrequently. Program operations have little impact on local economy. 

Program operations will provide a net benefit to the local economy, although the value of the benefit (in total dollars) may be small. 

classified as adversaopposing views are Program operations potential of severely affecting the local ec(e.g. high use develorecreational areas shdue to wildland fire which produces a sigthreat to public safet

S

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COMPLEXITY RATING FOR PREPAREDNESS This element addresses components of wildland fire readiness, incorporating fire resources, training and qualifications of personnel, mdispatch offices, maintenance of caches, and management of fire danger rating programs. 

PREPAREDNESS Sub-Element

S 

W 

V

Low 

1

Moderate 

3

High 

5

Training and Qualifications:

This sub-element addresses the diversity of work required to develop staff personnel to predetermined levels of the qualification system. This does not include ADs or EFF personnel.

5 Less than 25 unit personnel to 

meet local and interagency needs. Qualifications oversight would include 1-2 program activities. 

25 to 100 unit personnel to meet local, interagency and geographic area needs. Qualifications oversight would include 3-6 program activities. 

More than 100 unit pemeet local, interagencgeographic area and nneeds. Qualifications oversiginclude 7 program ac

Initial Attack Dispatch Office:This sub-element addresses the workload generated by management of local dispatch offices. 

2 The dispatch function is carried 

out on a collateral duty basis. 

The dispatch function (single agency only) during the established fire season staffed by a full-time dispatcher. 

The unit hosts an intedispatch center. Several dedicated stafserve in this function

Caches:This sub-element relates to the workload generated by management of fire equipment caches for local support. The assumption is made that stocks are not routinely utilized by local, dedicated firefighters who have their own issued equipment.

2 Cache inventory is small, 

enough to fully equip 10 to 25 incidental firefighters. The cache is infrequently used. 

Cache inventory is large enough to fully equip 26 to 100 incidental firefighters. The cache is used frequently, and occasionally to fill local interagency orders. 

Cache inventory exceperson size and unit mseveral 100-person cacombinations thereofis (are) used frequentfill local interagency 

Support to Other Units:This sub-element describes 

5 • Home unit supports one of 

the following: 

Home unit supports 2-3 of the following: 

Home unit supports/homore of the following: 

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PREPAREDNESS Sub-Element

S Low Moderate High 

W 

V 1 3 5

workload generated by providing intra-and interagency support. 

• Geographic Area 

Coordination 

• Interagency Training • Multi-crew EFF program • Interagency caches as part of 

the national cache system or geographic area 

• Interagency coordination/ 

dispatch center 

• Smokejumper base • Type 1 Crew • Retardant Base 

• Geographic Area 

Coordination 

• Interagency Training • Multi-crew EFF program • Interagency caches as part of 

the national cache system or geographic area 

• Interagency coordination/ 

dispatch center 

• Smokejumper base • Type 1 Crew • Retardant Base 

• Geographic Area 

Coordination 

• Interagency Train• Multi-crew EFF p• Interagency cache

the national cache geographic area 

• Interagency coord

dispatch center 

• Smokejumper bas• Type 1 Crew • Retardant Base 

Fuels and Fire Danger:

This sub-element reflects workload generated by the fuels on a unit (in fuel groupings of grass, brush, timber, and slash) and by ignition frequency; resistance to control is strongly considered.

10 Only grass group of fuels are 

represented and resistance to control is low. There are no management activity fuels. Unplanned ignition frequency is low (less than 10 per season). Visitation is not a factor in ignition sources. The value of the Burning Index (BI) for highest staffing level (95 or 97%) is equal to or less than 40. 

Other fuel groups are represented, but limited amount of slash. Management activity fuels are limited, or heavily mitigated. Unplanned ignition frequency between 11-100 per season. Visitation is a factor in ignition sources. The value of the Burning Index (BI) for highest staffing level (95 or 97%) is between 40 and 80. 

Other fuel groups repreheavy preponderance oand timber types; slash significant factor. Rescontrol is high. Management activity fprevalent, with limited controls. Unplanned ignition fregreater than 100 per seVisitation is a significaignition sources. The value of the Burni(BI) for highest staffinor 97%) is greater than 

Fire Resource Modules: 10 Module Types: (A module is defined as a wildland fire or support resource.) 

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PREPAREDNESS Sub-Element

S Low Moderate High 

W 

V 1 3

5

*(See description below)

Complexity is based on both type and quantity of fire resources. 

1) Air Tanker 2) Single Engine Air Tankers 3) Helicopters/Helitack Crews 4) Type II and EFF Crews 5) Interagency Hotshot Crews 6) Smokejumper Module 7) Engines and Water Tenders (includes personnel) 8) Dozers and Tractor Plows (includes personnel) 9) Prescribed Fire Modules (5-7 personnel) 10) Local ADO/CO Payment Teams 11) Interagency Dispatch/Coordination Centers 12) Air Tactical Modules (pilot + aircraft + Air Tactical Group Supervisor = managed locaComplexity is based upon both type and quantity of fire resource modules. The matrix bel

combines type and quantity of fire resource module units, thereby determining fire program 

complexity.  Example: A unit has 4 engines and 2 helicopters. The number of module types is 2 and thof module units is 6. Reading the matrix, the complexity is Moderate. 

Su

Individual Number of Fire Resource Module Units at 

MEL

1 - 5 6 - 10 11+

Number of Module Types

5 - 12 Moderate High High

2 - 4 Low Moderate High

1 Low Low Moderate

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INTERAGENCY FIRE PROGRAM MANAGEMENT QUALIFICATIONS STANDARDS AND GUIDE 

COMPLEXITY RATING FOR PROGRAM INTERDEPENDENCE 

This element evaluates the complexity of the program resulting from managing mutually dependant, or independent, fire and aviation aprescribed fire and fuels management, wildfire prevention/wildland fire education, preparedness, and aviation). It includes consideratifire activities managed, overlapping seasons of work between those activities, the likeness or uniqueness of skills needed to safely accoactivities, and the impact of success or failure of one activity on another. 

PROGRAM INTERDEPENDENCE Sub-Element 

S 

W 

V 

Low 

1 

Moderate 

3 

High 

5 

Consequences of the Outcome of One Program Activity on Another: This sub-element describes the extent to which effectiveness or ineffectiveness in one program activity may reduce or increase the complexity of another program activity.

5 The consequence or outcome of 

one program activity has little or no effect on the accomplishment or success of other program activities. For example, an aviation constraint would not impact a prescribed fire. 

The consequence or outcome of one program activity can have a short term effect (one year or less) on the success, or lack of success, of other program activities. For example, a highly successful fire prevention program reduces the wildland fire response workload for the current fire season or, conversely, a poorly managed aviation program results in a helicopter needed for igniting a prescribed burn to be unavailable during a critical prescription window. 

Several program activitieinteractive and dependenother for success. There opportunities to remedy and require skilled and cactions to be taken for suconsequence or outcome program activity can havterm effect (more than thyear) on the success, or lsuccess, of other program activities. For example, successful landscape preprogram reduces the neeprevention patrols for sevin a critical watershed orconversely, a wildland fiescapes and subjects a coto several days of dense, levels of smoke may advaffect, for several years, opinion and tolerance for resulting from future preprojects. 

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INTERAGENCY FIRE PROGRAM MANAGEMENT QUALIFICATIONS STANDARDS AND GUIDE 

COMPLEXITY RATING FOR LAND MANAGEMENT BASE This element references the degree of complexity established from land base size, ownership patterns, and the exwildland/urban interface or intermix upon the planning and operational components of the fire program manager

LAND MANAGEMENT BASE Sub-Element

S 

W 

V

Low 

1

Moderate 

3

High 

5

Total Acres Managed:This sub-element addresses relative land base size and (dis)continuity.

5 Smaller land unit acreage (less 

than 100,000 acres). Rapid response/reaction times; distances relatively short. Single land unit. 

Moderately sized land unit (more than 100,000 acres, less than 1,000,000 acres). Response times and distances are longer. May be multiple, noncontiguous land units. 

Large land unit (more 1,000,000 acres). Often requiring long rtimes due to long distaand/or inaccessible terMultiple, non-contiguunits. 

Ownership Pattern:This sub-element describes jurisdiction and ownership situations.

10 Fire program manager has only 

one agency jurisdiction in a single jurisdiction/single ownership situation. Single ownership. 

In a multiple jurisdictions/multiple ownership situation, the fire program manager has authority over only the one agency jurisdiction. Single or multiple ownerships. 

A single delegated fire management authority more than one jurisdiction/ownershipthe fire program manaimplement more than oagency’s policies. Multiple ownerships. 

Wildland/Urban:This sub-element describes the amount of interface/intermix 

10 Simple “wildlands” situation, 

with very limited interface or intermix. 

Contained, limited interface and/or intermix. 

Significant amount of and dispersed intermix situations. 

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LAND MANAGEMENT BASE Sub-Element

S Low Moderate High 

W 

V 1 3

5

and the degree of coordination required with other responsible fire management entities. NOTE: If the fire program manager has structural responsibilities within his/her Position Description, this subelement will automatically be rated as “HIGH”.

Has no coordination with other fire departments (volunteer or paid). No structural fire responsibilities. 

Coordinates with 1-4 other fire departments (volunteer or paid). No structural fire responsibilities. 

Coordinates with numother fire departments (volunteer and/or paidAgency has structural responsibility, as well wildland fire managem

Cultural/Natural Resources:This sub-element describes those cultural and natural resources that require protection from wildland fire. Only cultural and/or natural resources to be considered are those whose great uniqueness make them regionally or nationally significant. Those resources of significance only to local constituencies are not to be considered.

5 No resources of regional or 

national significance exist on the unit. 

Agency lands may have cultural and/or natural resources of regional or national significance, but they would not be negatively impacted permanently by wildland fire, or in fact, may be enhanced by wildland and/or prescribed fire.  In this category cultural and/or natural resources are likely adapted to frequent fire intervals. 

Agency lands have cuand/or natural resourcenational significance, would be negatively imby stand-replacement fires. 

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INTERAGENCY FIRE PROGRAM MANAGEMENT QUALIFICATIONS STANDARDS AND GUIDE 

COMPLEXITY RATING FOR WILDLAND FIRE This element defines the relative variations in programs through a discussion of applicable operational factors. Tdescribed to three levels of increasing complexity. All statements within the complexity levels need to be considcontext. All statements need not apply to a unit in order for it to acquire ranking. The factors shown are pertinenprogram only. 

WILDLAND FIRE Sub-Element

S 

W 

V

Low 

1

Moderate 

3

High 

5

Average Annual Wildland Fire Occurrence:This sub-element describes the unit’s ten-year average fire occurrence as determined by the agency approved fire planning process.

5 Average annual fire occurrence 

is 10 fires or less. Episodes of multiple fire occurrence include 5 or less fires per day at the Type 5 management level. 

Average annual fire occurrence is between 10 and 100. Episodes of multiple fire occurrence include 6-19 fires per day at the Type 4 and 5 management level. 

Average annual fire ocequals or exceeds 100. Episodes of multiple fioccurrence include 20 fires per day and includ3 and greater managemlevel fires. 

Average Annual Wildland Fire Acres Burned:This sub-element describes the ten-year average acres burned as determined by the agency approved fire planning process.

5 Average Annual Acres Burned

Fuel | 0-2500 2501-5000 5001-7500 7501-10,000 10Model |__________________________________________________________________

1-3 | Low Low Low Moderate Hi4-7 | Low Low Moderate High Hi8-13 | Low Moderate High High Hi

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INTERAGENCY FIRE PROGRAM MANAGEMENT QUALIFICATIONS STANDARDS AND GUIDE 

WILDLAND FIRE Sub-Element

S Low Moderate High 

W 

V 1 3

5

Length of Wildland Fire Season:This sub-element describes the length of fire season as determined by the agency approved fire planning process.

5 Season is limited to less than 4 

months. 

Season is four to six months. Season exceeds six mo

Values to be Protected:This sub-element describes the relative risk to life, property, and natural resources.

5 Very little risk to people, 

property, and resources. Fires usually occur in remote areas where visits by people are infrequent and of short duration. Natural resources are adapted to fire; frequent fire return intervals. Potential total commodity value one-time loss per acre is less than $500. 

Risk to people, property, and resources is limited to a few areas. Wildland fire may impact recreation use or degrade air quality and visibility of downwind communities but it does not threaten life or property. Natural resources are threatened. Fire exclusion has resulted in unnatural fuels buildup and higher intensity fires. Potential total commodity value one-time loss per acre is $500 to $5,000. 

Extensive risk to peoplproperty, and resourceArea has high visitatiowildland urban interfacWildfires annually threor property and severelair quality of communiNatural resources are sthreatened with standreplacement wildland fPotential total commodvalue one-time loss exc$5,000 per acre. 

Wildland Fire Management:This sub-element describes the 

5 Less than 5% of all fires 

require extended attack. 

Between 5% and 10% of all fires require extended attack. 

More than 10% of all frequire extended attack

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INTERAGENCY FIRE PROGRAM MANAGEMENT QUALIFICATIONS STANDARDS AND GUIDE 

WILDLAND FIRE Sub-Element

S Low Moderate High 

W 

V 1 3

5

level of organization and skills required to manage the unit wildland fire program.

The unit averages less than one type I or two type II fires per year. The duration of most suppression action fires (to control status) is normally less than one day. The unit wildland fire management plan does not allow unplanned wildland fire to be managed for resource benefit. 

The unit averages one type I or two type II fires per year. The duration of most suppression action fires (to control status) is normally less than three days. The unit wildland fire management plan allows unplanned wildland fire to be managed for resource benefit but the unit averages less than one per year. 

The unit averages more one type I or two type per year. The duration of most suppression action firecontrol status) often exfour days. The unit wildland fire management plan allowunplanned wildland firmanaged for resource band the unit averages mthan one per year. 

Firefighter and Public Safety: This sub-element describes the level of hazard and risk to human safety while conducting wildland fire management and wildfire suppression activities.  It considers both fire behavior and protection priorities. 

2 Safety issues easily identified 

and mitigated. Routine safety briefings are adequate. Elementary level considerations normally mitigated through standard training. Typically only ground resources are deployed. Public safety issues are 

Detailed briefings are needed to raise safety awareness. All safety hazards have been identified using the Risk Management System and mitigated, but some require special cautions. Multiple air and ground resources are deployed. A number of significant public 

Significant safety issuebeen identified. Detailinteragency briefings arequired to identify and mitigate safety concernStrategy and tactics mualtered to mitigate safeMultiple interagency aground resources are dPublic safety is of prim

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INTERAGENCY FIRE PROGRAM MANAGEMENT QUALIFICATIONS STANDARDS AND GUIDE 

WILDLAND FIRE Sub-Element

S Low Moderate High 

W 

V 1 3

5

minimal or do not exist. Flame lengths usually less than four feet safely allowing direct attack most of the time. 

safety issues have been identified. Flame lengths are usually greater than 4 feet but less than 8 feet. A combination of direct and indirect attack is used most of the time. 

concern due to high visor wildland interface/inareas. Flame lengths are usuagreater than 8 feet requindirect attack most of 

Fuels and Fire Behavior:This sub-element describes the fuels and fire behavior characteristics typical of most of the unit. 

2 Fuel characteristics are mostly 

uniform and only one fuel type exists (grass, brush, timber or slash). Fire behavior prediction can be accomplished using only one fire behavior fuel model. 

Considerable variation exists in fuel characteristics but only one of the four fuel types exist in significant abundance. Fire behavior predictions generally require the use of two fuel models. 

Highly variable fuel characteristics exist thrthe unit and three or fotypes exist in significanabundance. More than two fuel moinvolved in predicting behavior. 

Sub

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INTERAGENCY FIRE PROGRAM MANAGEMENT QUALIFICATIONS STANDARDS AND GUIDE 

COMPLEXITY RATING FOR PRESCRIBED FIRE/FUELS MANAGEMThis element describes fire program complexity resulting from unit prescribed fire and mechanical fuel treatmenconsiders the number, complexity level and concurrency of prescribed fire projects and the size and variety of mtreatment projects conducted annually on the unit. A critical requirement for determining program complexity is that the rater first complete required individual precomplexity ratings, using the “NWCG Prescribed Fire Complexity Rating System Guide,” or other approved ageResults are used as impacts to the “workload” sub-element. 

PRESCRIBED FIRE Sub-Element 

S 

W 

V 

Low 

1 

Moderate 

3 

High 

5 

Prescribed Fire: This sub-element describes the number and complexity level of prescribed fire projects conducted annually on the unit.  Complexity level is determined by using the NWCG Prescribed Fire Complexity Rating System Guide (NFES 2474) or other approved agency complexity rating system. 

5 No prescribed fires conducted 

that rate at the HIGH complexity level. Less than 5 prescribed fires conducted annually at the MODERATE complexity level. No concurrent prescribed fire projects are conducted. No aviation activities are involved in conducting prescribed fires. 

Numbers and complexity of prescribed fires conducted annually is greater than described in “LOW” and less than that described in “HIGH”. Episodes of concurrent ignitions do not include HIGH complexity level burns. Prescribed fires occasionally include aviation operations or support. 

More than 10 prescribare conducted annuallat MODERATE comphigher with at least 3 orated at the HIGH comlevel. Episodes of concurreninclude HIGH compleburns. Prescribed fires frequeinclude aviation operasupport. 

Multiple Ownership/Multiple Jurisdictions: This sub-element addresses multiple ownership/multiple jurisdiction prescribed fire situations.

2 Prescribed fires conducted on 

agency lands only. No prescribed fires conducted on other ownership/jurisdiction. 

One to five prescribed fires which involve multiple ownership/multiple jurisdictions are conducted annually. 

More than five prescriwhich involve multiplownerships/multiple jurisdictions are conduannually. 

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INTERAGENCY FIRE PROGRAM MANAGEMENT QUALIFICATIONS STANDARDS AND GUIDE 

PRESCRIBED FIRE Sub-Element 

S Low Moderate High 

W 

V 1 3 

5 

Burn Season Length: This sub-element addresses the length of the burn season as it affects program complexity.

2 Fire season permits prescribed 

fires within prescription most of the year. Burns are easily planned and implemented with respect to burning window. 

Conditions limit burning season to about six months of the year. Burn planning and implementation with respect to burn windows are somewhat more constrained but burning needs can usually be accomplished with one burn block per day. 

Conditions severely liof burn season. Condmeet prescriptions limvery few months per ysome years may not haseason at all. Burn plaand implementation seconstrained with respewindows. Requires raexpansion of burn promultiple burn blocks ein order to meet burnin

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INTERAGENCY FIRE PROGRAM MANAGEMENT QUALIFICATIONS STANDARDS AND GUIDE 

MECHANICAL Sub-Element 

S 

W 

V 

Low 

1 

Moderate 

3 

High 

5 

Treatment Objectives:This sub-element describes the ease or difficulty in accomplishing unit fuel treatment objectives resulting from environmental constraints, property boundary issues, and/or the variety of equipment needed to achieve the desired results 

5 Mechanical project use is 

small and treatment objectives are non-controversial and easily accomplished. Treatment units are usually surrounded by agency controlled land. Environmental constraints cause no change in operating season and do not require special mitigation measures. 

Use of mechanical fuel treatment method is extensive but treatment units only require a single mechanical entry after which the fuel profile is maintained with prescribed fire. Property boundaries are clearly marked and do not cause problems for project layout and mapping. Environmental constraints exist and mitigation measures and limited operating seasons are implemented but do not generally interfere with the accomplishment of fuel treatment objectives. 

Use of mechanical fuel treatment method is exteand treatment units requseveral mechanical entribefore the fuel profile camaintained with prescribfire. Mechanical maintenactivities to existing treaare required on a frequeperiodic basis. Property boundary definare complicated by mixeownership and are not wmarked causing difficultproject layout and mappEnvironmental constrainimpose operating season mitigation restrictions wseverely compromise thability to accomplish fuetreatment objectives. 

Implementation:This sub-element described the extent of mechanical fuel treatment activities conducted on the unit, the environmental sensitivity of conducting those activities and the kind and 

2 Simple implementation 

techniques and hand-operated tools are utilized to accomplish projects. 

Multiple implementation techniques and tools are involved. The use of one type of heavy equipment is required to accomplish fuel treatment objectives. 

Multiple, complex implementation techniqutools are involved. Sevetypes of heavy equipmenused to achieve fuel treaobjectives. 

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INTERAGENCY FIRE PROGRAM MANAGEMENT QUALIFICATIONS STANDARDS AND GUIDE 

MECHANICAL Sub-Element 

S Low Moderate High 

W 

V 1 3 5 

type of post-sale slash disposal methods which are required.

Opportunity for causing project related environmental damage is very low. Generally no post-sale fuel treatment activities are conducted. 

Opportunity for causing project related environmental damage is related to the use of heavy equipment and can be mitigated. Post-sale activities are limited to the disposal of landing and road construction/maintenance slash. 

Detail planning and implementation adminisis required to avoid environmental damage. Several methods of posttreatments are conducted throughout the timber saand include activities sudozer, grapple or excavapiling, whip-felling/thinchipping or small log ya

Values to be Protected:This sub-element describes the relative risk to life property and natural resources in the areas requiring treatment.

2 Very little risk to people, 

property, and resources. 

Risk to people, property, and resources is limited to a few isolated areas of high visitor use or development. 

Great risk to people, proand resources exists thromuch of the managemenHigh visitor use or urban interface areas are adjacplanned treatment areas

Sub

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INTERAGENCY FIRE PROGRAM MANAGEMENT QUALIFICATIONS STANDARDS AND GUIDE 

COMPLEXITY RATING FOR AVIATION 

This element references the degree of complexity associated with the presence of an aviation program on the unicomplexity is described in terms of the number of program activities which use aviation, the necessity of having the unit, the number and nature of aviation contracts managed, and the logistics involved in managing the aviatioairspace coordination and permanent or temporary aviation bases. AVIATION Sub-Element

S 

W 

V

Low 

1

Moderate 

3

High 

5

Aviation: (see description above)

5 Occasional demand for aviation 

resources met by cooperating agency, use of call-when-needed aircraft, or another unit. All aviation resources and management expertise is imported. A single aviation contract for pointto-point and/or detection services may be in place. No other exclusive use contracts are in place. No temporary aviation bases are established. Remote airstrips may be maintained. No unit aviation program exists. Support to other programs comes from outside sources. 

Aviation program confined to one program activity, such as prescribed fire. Aviation expertise is on the unit (e.g. helicopter manager or fixed wing base manager, sufficient to manage exclusive use and/or callwhen-needed aircraft). One exclusive use aviation contract, either fixed or rotor wing is in place. This would be other than a fixed wing point-topoint/detection contract. Temporary aviation bases for specific project needs may be established. The aviation program may provide support to non-fire related resource programs, such as wildlife surveys. This support involves up to 10% of the total aviation use.

Aviation program covers program activities. The unit requires more thpersonnel qualified to mamixture of aviation resouexclusive use and/or callneeded contracts. Two or more exclusive ucontracts in place. Multiple aviation bases shelibases are maintainedThe aviation program prosupport to non-fire relate This support involves gr10% of the total aviation 

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AVIATION Sub-Element

S Low Moderate High 

W 

V

1 3 5

Aviation, continued 5 Airspace management is not a 

concern. Any military training route over the unit is well defined and does not create airspace conflicts. Fire operations do not take place in congested or controlled airspace. 

Airspace management may be a concern, but careful planning prevents airspace conflicts. Fire operations may take place in the vicinity of congested or controlled airspace, requiring the issuance of a TFR. 

Airspace management recareful planning to avoid conflicts due to the presecongested airspace in the the unit. Numerous TFRannually. 

S

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INTERAGENCY FIRE PROGRAM MANAGEMENT QUALIFICATIONS STANDARDS AND GUIDE 

COMPLEXITY RATING FOR WILDFIRE PREVENTION/WILDLAND FIRE EDUCATWildfire Prevention This element describes the complexity of a unit wildfire prevention program and is based on two major factors aunit Wildfire Prevention Analysis and Plan Process; 1) the “potential” of an area to incur suppression costs and nproperty loss or damage from wildland fires, and 2) an area’s history of suppression costs and resource/property both naturally ignited and human-caused wildland fires.Wildland Fire EducationThis element also describes the complexity of a wildland fire educational program and is directly related to the nobjectives relating to wildland fire, including resource management, fire prevention, fuels management and fire sappropriate program level of wildland fire education can be determined by the need to develop and share the knofire management and the related resource program information to an agency’s audiences. 

PREVENTION Sub-Element

S 

W 

V

Low 

1

Moderate 

3

High 

5

Prevention:This sub-element describes the extent of the wildfire prevention problem as a function of ignition risk, fuel hazard rating, the cost of fire suppression and wildfire damage potential. Ratings referenced are from the unit Wildfire Prevention and Analysis and Plan. 

2 At least 75% of the area’s 

prevention analysis ratings are low with no more than 20% rated as “moderate” and no more than 5% rated as “high”. Historical fires have not been expensive to suppress, do not create significant exposure to the public or firefighters and do not regularly cause resource, cultural or property loss or damage. 

The area’s prevention analysis ratings are primarily “moderate” or “ low”, with few rated as “high”. Historical fires occasionally are expensive to suppress, can create significant exposure to the public or firefighters and regularly cause resource, cultural or property loss or damage. 

At least 75% of the prevention analysis “moderate” or “higharea contains concenpolitical, social or ecvalues at risk. Histoare regularly expenssuppress, create signexposure to the publfirefighters and ofteresource, cultural or loss or damage. 

S

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EDUCATION 

Sub-Element

S 

W 

V

Low 

1

Moderate 

3

High 

5

Wildland Fire Education:This sub-element describes the diversity of audiences, the complexity of the message, the sophistication of the delivery system and the skill level necessary for implementation of a successful wildland fire education program. 

2 Very few agency managers, staff, 

non-fire and fire specialists have a need for wildland fire knowledge. Very few groups or key individuals require information regarding wildland fire and its applications. Public interest is generally low and non-controversial. Few messages with simple content are needed. Message delivery involves one method of educating local audiences such as pamphlets. Includes agency individuals with little formal communication training or experience. 

Many agency managers, staff, non-fire and fire specialists have a need for wildland fire knowledge in order to support fire program objectives. Groups or key individuals that are sensitive to wildland management decisions require information regarding wildland fire and its applications. An interested public demands continuous attention but the messages are general in nature and may be mass-produced and distributed. Message delivery involves a combination of methods to successfully educate audiences locally and regionally. Includes agency individuals with formal communication training, experience and skills. 

All agency managersfire and fire specialistextensive need for wiknowledge in order to perform their duties. Several or many groudiverse interests, activsensitive to wildland decisions, require an regarding wildland firapplications. Conflicting viewpoinvariety of individuals require carefully tailomessages. Message delivery invimplementation of sevsophisticated methoddelivery vehicles that educate audiences locover a large geographwith a large populatioInclude agency and nindividuals accomplisexperienced in develoapplying sophisticatecommunication stratemethods. 

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S