Forest Service

U.S. DEPARTMENT OF AGRICULTURE

FS-1216 | June 2023

NATIONAL PRESCRIBED FIRE 

RESOURCE MOBILIZATION STRATEGY

i

CHIEF’S FOREWORD

I am pleased to release the agency’s National 

Prescribed Fire Resource Mobilization Strategy. This 

strategy is one of the commitments I made when 

I released the “National Prescribed Fire Program 

Review” in September 2022. It is a continuation of 

our dedication to improve the prescribed fire program 

and demonstrates our values of safety and service 

to protect communities and restore the health and 

resilience of the Nation’s forests. 

We are a global leader in the use of prescribed fire 

as a management tool to reduce wildfire risk to 

communities, critical infrastructure, and cultural and 

natural resources. Prescribed fire is also critical to 

improving forest resiliency and implementing our 

Wildfire Crisis Strategy. This mobilization strategy 

includes recommendations to align prescribed 

fire implementation, support, and coordination 

agencywide by using fire suppression processes and 

procedures to supplement and prioritize prescribed 

fire on landscapes identified under the Wildfire Crisis 

Strategy. It also outlines a scalable management 

organization in the form of regional prescribed fire 

implementation teams sized to match the scope of 

projects. 

As we implement this mobilization strategy, we 

must continue to engage with the public about 

why and where we do prescribed burns. We also 

must continue to coordinate with Tribes, partners, 

other agencies, and communities in planning and 

conducting prescribed burns to ensure we incorporate 

their knowledge, capacity, and support. By working 

together across landscapes, we can ensure the longterm success of the Wildfire Crisis Strategy.

This mobilization strategy is a fundamental shift in 

how we do business. 

It will take time 

to make these 

changes. However, 

we must take some 

important first steps 

to implement this 

mobilization strategy 

and to ensure the 

continued success of 

our prescribed fire 

program. As such, we 

will move forward on the following actions:

• This year and into the future, we will prioritize 

prescribed fire on a larger geographic scale. Our 

success will be measured not only in acres, but also 

in how well we set aside our individual unit goals and 

commit to stewarding the whole. We need to share 

qualified personnel who can plan and implement 

prescribed fire to meet our goal of increasing the pace 

and scale of prescribed fire. Therefore, I expect all 

supervisors to allow willing, qualified employees to 

be available in the Interagency Resource Ordering 

Capability (IROC) system for prescribed fire 

assignments. Although this could mean delaying or 

setting aside other mission-related work, remember 

that our window for prescribed fire can be limited, 

especially in the West. In addition, ensuring these 

employees are available will help to improve worklife balance for all. 

• As I stated in the “National Prescribed Fire Program 

Review,” we also will continue to work with Tribes, 

partners, and communities to expand prescribed 

burning on National Forest System and other lands. 

Chief Randy Moore
ii 

We still have much to learn from Tribal Nations, 

and Indigenous traditional ecological knowledge is 

invaluable as we work to return fire to the landscape. 

By considering Tribal heritage, supporting cultural 

burning and fire regimes, and applying Indigenous 

traditional ecological knowledge, we can achieve our 

mutual land management goals, support traditions, 

reduce the risk of extreme wildfires, and uphold our 

responsibilities to Tribal Nations.

• We have expanded the availability of contracted 

resources to support priority fuels work. This 

increased capacity ensures that doing more prescribed 

burning does not fall squarely on the backs of our 

existing wildland firefighters. All virtual incident 

procurement (known as VIPR) resources that were 

formerly only available for wildfire suppression are 

now available for prescribed fire. Engines, water 

tenders, fuel tenders, heavy equipment, logistical 

support, type 2 crews, and type 2 initial attack crews 

are accessible when agency resources are unavailable, 

when standard established processes for prescribed 

fire resource procurement have been exhausted, or 

when a special need is unattainable elsewhere. These 

resources now can be ordered through IROC and filled 

by the host dispatch center.

• This fiscal year, I have asked the Washington Office 

Fire and Aviation Management staff to continue to 

work with the regions to pilot the prescribed fire 

implementation team (RxIT) concept detailed in 

this mobilization strategy. These teams are essential 

for planning and project implementation (preburn 

planning, execution, and postburn monitoring and 

reporting). During this time, they will gather data on 

the pilot projects. In fiscal year 2024, they also will 

work with regions and partners to develop a feedback 

loop for refinements and broader application of 

prescribed fire implementation teams. 

• As we increase the scope and scale of hazardous 

fuels work, as well as work towards meeting our 

Wildfire Crisis Strategy goals, I cannot overstate the 

importance of line officers becoming qualified agency 

administrators as it relates to prescribed fire. Your 

commitment to meeting these qualifications will have 

a lasting impact on achieving our agency goals. 

I extend my heartfelt thanks to the Prescribed Fire 

Coordinating and Advisory Team and the National 

Incident Management Organization Team for their 

hard work and commitment to completing this 

mobilization strategy within the timeframe outlined 

in the “National Prescribed Fire Program Review.” I 

also want to thank all the dedicated employees who 

supported this work, including agency experts in fire 

management and operations, contracting, budget, and 

public affairs. Completing this strategy meant tackling 

and sorting through multiple complex issues to 

develop solutions for continuous improvement in how 

we plan and conduct prescribed burns.

This mobilization strategy is another example of 

how the Forest Service continues to be a learning 

organization. It is also an example of how we hold 

ourselves accountable and follow through on our 

commitments in service to the American people. They 

entrust us to manage national forests and grasslands 

on their behalf. Through this work, we will continue to 

reduce wildfire risk to people’s lives and communities 

and create resilient forests that will benefit current and 

future generations.

RANDY MOORE

Chief of the USDA Forest Service
iii

EXECUTIVE SUMMARY

The U.S. Department of Agriculture (USDA), Forest 

Service has long recognized and studied the value 

of fire as a tool to manage forest ecosystems (Berg 

1989 and Delcourt et al. 1999). Forest ecosystems, 

including those in the western continental United 

States, were historically shaped by both naturally 

occurring fires (e.g., lightning strikes) and the 

introduction of fire to achieve goals such as land 

clearing and reduction of fuels to mitigate wildfire 

threats. These fire-adapted ecosystems depend on 

fire to maintain functionality and biodiversity, while 

expanding human habitation has increased the need to 

suppress fire.

To maintain these ecosystems, the Forest Service 

and other organizations have developed programs 

to introduce fire under specific conditions, which is 

called “prescribed” or “Rx” fire. While the Forest 

Service is a recognized leader in prescribed fire, 

the pace and scale of these efforts, especially in the 

western continental United States, has not kept up 

with the changing climate, the expanding wildlandurban interface, and the buildup of fuels across 

landscapes. These circumstances have contributed 

to an increase in size and destructivity of wildfires, 

reaching crisis proportions in the West (USDA 

January 2022).

As part of its Wildfire Crisis Strategy, the Forest 

Service has identified landscapes in critical need of 

work to reduce exposure to and risk from wildfires 

(USDA April 2022). Hazardous fuels reduction is 

a major component of this work, and prescribed 

fire is key to reducing fuels. This document, which 

focuses on managing an increased pace and scale 

of prescribed fire in the Forest Service, is one 

component of a suite of efforts addressing the need 

to protect communities and reduce hazardous fuels 

in forest ecosystems. Other efforts are underway to 

increase partner participation, expand the available 

workforce, accelerate project design and planning, 

and to integrate mechanical treatments onto the 

landscape. The Forest Service is also collaborating 

with Tribes via Tribal Forest Protection Act and Good 

Neighbor Authority agreements to increase restoration 

and hazardous fuel reduction work. 

The foundation of this strategy is to build upon 

the existing wildland fire system—including the 

flexibility, adaptability, and expertise of local 

resources—and apply those strengths to the planning 

and execution of prescribed fires. The Forest Service’s 

prescribed fire program must expand to accomplish 

agency goals detailed in the Wildfire Crisis Strategy. 

Some recommendations contradict traditional efforts 

and may be resisted by agency employees; however, 

they are necessary to meet the needs of a national 

prescribed fire system.

This strategy recommends building a prescribed fire 

implementation team (RxIT) for each Forest Service 

region with landscapes identified in the Wildfire 

Crisis Strategy or similar areas identified elsewhere. 

These RxITs would have a seven-person core 

command and general staff (C&G) operating under 

the incident command system (ICS). They would be 

structured like incident management teams (IMTs) 

used in wildfire response; however, some positions 
iv 

(e.g., incident commander, operations) would require 

prescribed fire qualifications. This core group would 

be supplemented by additional ICS functions to meet 

prescribed fire needs. The RxITs could be assigned 

to specific projects or to support landscape-level, 

cross-boundary fuels management efforts. The RxITs 

are not intended to replace existing forest or unit 

implementation teams. They would meet needs such 

as providing season-long support and surge capacity 

for large-scale prescribed fire projects. This concept 

of RxITs is not new; however, it does formalize 

and build upon existing practices used by national 

forests. RxITs will increase the pace and scale of 

implementing prescribed fire projects at landscape 

levels.

This strategy also recommends expanding the current 

wildfire coordinating system to include prescribed 

fire. This would build a multi-mission wildland fire 

coordinating system. This evolution would not create 

a new or separate system but allows a prescribed fire 

coordination system (RxCS) to operate as part of this 

multi-mission approach to align priorities, consider 

critical needs, and address resource scarcity for all 

aspects of wildland fire management. The RxCS, as 

part of the reconfigured wildland fire coordinating 

system, would be activated as needed depending on 

the level of activity and resource competition.

Increasing the pace and scale of prescribed burning 

will require a different approach to implementation.

1

 Forest Activity Tracking System (FACTS) query December 1, 2022, using fiscal year 2018–22 accomplishments.

Forest Service data for 2018–2022 shows an average 

prescribed fire is just over 100 acres in the western 

continental United States, while the average for the 

Nation is just under 300 acres.1 The traditional style 

of burning smaller units one at a time needs to be 

redesigned to include options for managing multiple 

units together. These smaller units could be packaged 

together for sequential or simultaneous burning, using 

an RxIT to provide a centralized command structure 

across large landscapes with multiple prescribed 

fire projects. Large projects could be designed 

and implemented in a model akin to large wildfire 

engagement, with an RxCS providing prioritization 

and resource allocation support. The proven and 

practiced wildfire planning and engagement processes 

familiar to the agency workforce can be adapted using 

burn plan intent, limitations, and design to execute 

landscape-scale prescribed fires.

Each section of this strategy has been considered 

with the dual purpose of supporting the RxIT 

style implementation effort while also identifying 

recommendations and procedures to support all 

implementation levels in a consistent and scalable 

fashion. Landscapes identified in the Wildfire Crisis 

Strategy provide opportunity to inform and improve 

this strategy as it is implemented. Each burn and 

location will encounter different conditions and 

challenges and will provide opportunity for real-time 

design adjustment.
CONTENTS

Introduction..............................................................................................................................................................1

Prescribed Fire Implementation...............................................................................................................................2

Prescribed Fire Coordination ...................................................................................................................................3

Prescribed Fire Organization ...................................................................................................................................4

Prescribed Fire Implementation Team Functional Considerations .........................................................................9

Incident Command ................................................................................................................................9

Public Information ...............................................................................................................................10

Safety ...................................................................................................................................................10

Operations............................................................................................................................................10

Planning ...............................................................................................................................................10

Logistics ...............................................................................................................................................11

Finance .................................................................................................................................................11

Prescribed Fire Prioritization .................................................................................................................................12

Additional Factors..................................................................................................................................................13

Mobilization.........................................................................................................................................13

Workforce Development ......................................................................................................................13

What It Will Take...................................................................................................................................................14

References..............................................................................................................................................................15

List of Acronyms and Abbreviations .....................................................................................................................16

Appendix A: RXIT Staffing Considerations by Function .......................................................................................17

Appendix B: Prescribed Fire Prioritization Decision Support ..............................................................................20

Appendix C: Mobilization ....................................................................................................................................26

Firefighters ignite and monitor 

a prescribed burn. USDA Forest 

Service photo by Eric Knapp.

1

INTRODUCTION

A task group of incident management experts at the 

Forest Service, an agency of the U.S. Department of 

Agriculture, developed this mobilization strategy for 

prescribed fire. The strategy specifically addresses 

prescribed burning on Wildfire Crisis Strategy 

landscapes and across regional boundaries.

The requirements for the strategy were to: (1) 

include a plan for implementation timing, a proposed 

command structure, and logistics to prioritize 

and mobilize resources for both suppression and 

prescribed burning activities; and (2) include 

necessary staffing, funding, and monitoring to help 

shape future system improvements.

The task group used an internal gap analysis to 

identify knowns, unknowns, and limitations to 

success. This process identified several issues that 

required external and/or higher level input and 

provided a foundation to produce this strategy. 

The “National Prescribed Fire Program Review” 

(USDA September 2022) includes a recommendation 

to use “Forest Service suppression resources, 

qualified militia, and contractors to support 

implementation of prescribed-burning-related shelf 

stock within [Wildfire Crisis Strategy] landscapes.” 

This recommendation may lead to an assumption 

that existing fire management organizations would 

simply absorb the management of these resources to 

implement this significantly expanded prescribed fire 

workload.

While many concepts of wildland and prescribed 

fire management are similar, the two are not 

interchangeable. Differences in the level of 

experience, interest, and expertise in prescribed 

fire management across regions and landscapes are 

significant. Many personnel currently qualified at 

the highest levels in the incident command system 

(ICS) to manage wildfires are not qualified as highlevel prescribed fire burn bosses or prescribed fire 

managers. Experts in wildfire suppression are faced 

with the need to quickly expand and diversify their 

skillsets to manage robust prescribed fire programs. 

National efficiencies and a consistent, uniform 

approach to expand capacity while addressing safety 

and sociopolitical risks are needed to ensure potential 

conflicts in managing both fire programs are mitigated 

as the pace and scale of prescribed fire increases. 

To develop those efficiencies and expand capacity 

as envisioned, processes are needed to prioritize 

and coordinate support for multiple prescribed burn 

programs being implemented both simultaneously 

and sequentially. These processes would logically be 

accepted more widely and implemented more quickly 

to become systemic norms when rooted in familiar 

practices and concepts that are adapted and expanded 

to include management of fire suppression and 

prescribed fire together.

The task group reached out to multiple Geographic 

Area Coordination Centers (GACCs) and drew 

from personal experiences in roles such as incident 

commander, prescribed fire burn boss, and fire 

management officer to identify current familiar 

processes that could be adapted and leveraged to 

develop systemic norms. Ideations were intentionally 

anchored in what appeared to be most collectively 
2 

known, time-tested, and useful to limit required 

changes and to maximize potential for use in 2023. 

Using this approach would also ease the transition 

to management of complex fire suppression and 

prescribed fire programs simultaneously. The task 

group’s recommendations employ existing processes 

for resource mobilization and tracking and would 

use Wildfire Crisis Strategy landscapes as a learning 

platform. To address prescribed fire management in 

a more integrated interagency environment, these 

processes would continue to be refined, expanded, and 

adapted to accommodate changing needs, conditions, 

and policies.

PRESCRIBED FIRE IMPLEMENTATION

Using prescribed fire implementation teams (RxITs) 

that incorporate prescribed fire practitioners and 

expertise into a management structure following 

ICS concepts would support prescribed fire 

implementation at multiple organizational and 

complexity levels. Teams comprised of command and 

general staff (C&G) positions supported by necessary 

subordinates at a regional level could be assigned 

for multiple months to provide public information, 

planning, finance, and other support both prior to 

and during the implementation of specific projects. 

Other teams could be established to implement 

projects independently and to support implementation 

of multiple projects using distributed operations 

concepts. This strategy recommends up to six formal 

RxITs be formed to support the six Forest Service 

regions with landscapes identified in the Wildfire 

Crisis Strategy, with additional RxITs assembled as 

necessary to support implementation. All RxITs are 

scalable, can be tailored to meet specific needs, and 

facilitate the implementation of multiple projects 

simultaneously or sequentially by leveraging the use 

of available resources and the planning process to 

operate efficiently.

Assigned RxITs would ensure the requirements 

identified in the “National Prescribed Fire Program 

Review” are met prior to implementation of 

prescribed fire projects. To establish an effective 

implementation schedule, these teams would 

collaborate across multiple levels and would consider 

a variety of factors that influence probability of 

success, including weather, resource availability, 

logistical and other support limitations, and safety 

considerations.

An unmanned aircraft system (UAS) is used to 

monitor a prescribed fire on the Fishlake National 

Forest in Utah. USDA Forest Service photo.
3

PRESCRIBED FIRE COORDINATION

The existing wildfire coordination system should 

be expanded to embed prescribed fire coordinators 

in established and ad hoc coordinating groups at 

the national, geographic, subgeographic, zone, and 

unit levels (fig. 1). Expanding the existing wildfire 

coordination system to include 

prescribed fire would support 

the evolution of a multi-mission 

wildland fire coordination 

system and would include a 

prescribed fire coordination 

system (RxCS) at all levels. 

The baseline communication 

and coordination at local 

levels between RxITs, agency administrators (AAs), 

and others would continue; however, the proposed 

expansion of the existing coordination system to 

include an RxCS would provide formalized and 

efficient support at higher activity levels.

The RxCS can work across boundaries to ensure 

that resources are available to support the needs of 

assigned RxITs implementing multiple projects at 

multiple levels. The RxCS facilitates the development 

of a common operating picture that is aligned and 

maintained as conditions and opportunities change 

to quickly allocate/reallocate resources and support 

emerging opportunities in a scalable (single unit, 

subgeographic, geographic, national) manner.

When resources are assigned 

to prescribed fire projects, the 

“closest forces concept,” which 

considers the geographically 

closest available and qualified 

resources as the logical option, 

would be employed. Using this 

concept would take advantage 

of local expertise, reduce 

complexities associated with mobilization and support 

of nonlocal resources, and allow coordination efforts 

to address identified gaps in resource availability. 

The RxCS would be focused on filling those specific 

gaps, supporting larger and/or more complex projects, 

coordinating implementation across boundaries, 

and addressing specialized needs for training, 

technological support, and agency guidance.

Multi-mission system: Adapting the wildland fire coordinating system to include prescribed fire

Figure 1.—Adapted wildland fire coordination system.

National Level

(Tier 1)

Embed an Rx fire 

coordinator within 

the National 

Multi-Agency 

Coordination 

Group

Geographic Level 

(Tier 2)

Embed an Rx fire 

coordinator within 

the Geographic 

Area Coordination 

Group

Priority Landscape/

Subgeographic 

Level (Tier 2/3)

Formalized 

membership 

within the 

subgeographic area

Zone Level

(Tier 3)

Activate additional 

personnel upon 

need within the 

local area

Unit Level 

(Tier 4)

Activate additional 

personnel upon 

need within the 

local area

Expanding the existing 

wildfire coordination system 

to include prescribed fire 

would support the evolution 

of a multi-mission wildland 

fire coordination system and 

would include a prescribed fire 

coordination system at all levels. 
4 

PRESCRIBED FIRE 

ORGANIZATION

Much like wildfire suppression, prescribed fire management 

ranges in complexity and resource needs vary. The lowest 

complexity projects may require only a few personnel or other 

resources to meet all identified needs; however, each requires 

the commitment of a prescribed fire burn boss (RxBB) and AA, 

and lower complexity projects generally treat fewer acres than 

higher complexity projects. By moving beyond this approach to 

one of packaging multiple units for management as a complex 

under one RxIT, the pace and scale of implementation can be 

dramatically increased. Effective communication between AAs, 

RxITs, wildland fire coordinating groups, and others would 

determine the appropriate mix of implementation organizations.

The RxIT is part of a larger organization supporting the AA, 

who may designate a representative to work directly with the 

prescribed fire organization. The AA (or their representative) 

would provide direction and delegation as necessary and the 

RxIT would coordinate and communicate with other groups, 

including, but not limited to, public affairs, administration, 

budget, and fire management, to achieve agency objectives. 

An authorizing document (i.e., delegation of authority (DOA)) 

should be used to authorize action, define budgetary constraints, 

identify limits of authority, and to outline procedures, including 

those related to wildfire declaration.

The RxIT is designed to expand and contract to meet 

organizational needs. Each function that supports the 

implementation of prescribed burning can be scaled up or down 

at any level to ensure that logistical, financial, planning, safety, 

and public information functions are adequately staffed to 

support the pace and scale of implementation. The task group 

identified four tiers of organizational complexity and developed 

the examples displayed in figures 2–5.

A prescribed fire on the Osceola 

National Forest. USDA Forest Service 

photo by Susan Blake.
5

TIER 4: SELF-CONTAINED PLANNING AND IMPLEMENTATION 

Figure 2.—Tier 4 organization.

* The current “Standards for Prescribed Fire Planning and Implementation” (NWCG 2022) states each 

prescribed fire will have an appropriately qualified RxBB based on the prescribed fire burn plan complexity 

analysis.

** As of November 2022, agency administrator qualifications for prescribed fire and suppression are distinct and separate. AA qualifications for 

prescribed fire are now RXA1, RXA2, RXA3. This will require an update to the “Standards for Prescribed Fire Planning and Implementation” 

(NWCG 2022).

Features and Considerations—Focus on Implementation

•	 Command structure consists of an AA and RxBB.

•	 Coordination needs are minimal and ad hoc, likely taking place at the sublandscape or forest level.

•	 Resource needs for implementation and support functions (i.e., plans, logistics, finance, public information, 

and safety) are likely to be filled locally. If gaps are identified, resource orders could be placed to 

supplement the local organization.

Forest Service and Bureau of Land Management 

staff participate in an interagency prescribed fire 

briefing on the Plumas National Forest. USDA 

Forest Service photo by Jason Miller.

Lines of authority

Staffed as needed

Rx Fire Burn Boss* Agency Administrator

(AA)**

Support Functions Firing Boss Holding Resources

(FIRB)

Contingency and 

Other Resources
6 

TIER 3 : CENTRAL PLANNING WITH DISTRIBUTED IMPLEMENTATION

Figure 3.—Tier 3 organization; RxIT = prescribed fire implementation team; RXMG = prescribed fire manager.

* The current “Standards for Prescribed Fire Planning and Implementation” (NWCG 2022) states each prescribed fire will have an appropriately 

qualified RxBB based on the prescribed fire burn plan complexity analysis.

** As of November 2022, agency administrator qualifications for prescribed fire and suppression are distinct and separate. AA qualifications for 

prescribed fire are now RXA1, RXA2, RXA3. This will require an update to the “Standards for Prescribed Fire Planning and Implementation” 

(NWCG 2022).

Features and Considerations—Focus on Implementation

•	 Command structures may include multiple AAs or AA representatives as burns could be on multiple 

administrative units. Each burn has an RxBB to manage its burn organization.

•	 The RxIT is more robust and formalized to provide implementation support functions and oversight of those 

functions. A prescribed fire manager (RXMG) or RxBB is included in the command structure to function in 

a role like an incident commander (IC) for a wildfire complex. The RxIT has most C&G positions filled to 

mitigate span-of-control issues and provide effective coordination and implementation.

•	 Coordination needs may expand and more resources may be ordered using closest forces concepts.

A forest in South Lake 

Tahoe, CA, that was 

treated with both 

mechanical thinning 

and prescribed fire. 

These treatments were 

attributed with saving 

communities from the 

Caldor Fire in 2021. USDA 

Forest Service photo by 

Cecilio Ricardo.

Rx Fire Burn Boss* Rx Fire Burn Boss*

Local Burn 

Organization

Local Burn 

Organization

Agency Administrator

(AA)**

RXMG

RxIT RxBB*

Lines of authority

Staffed as needed
7

TIER 2 : PRIORITY LANDSCAPE OR GEOGRAPHIC AREA COORDINATION

Figure 4.—Tier 2 organization; GMAC = geographic multi-agency coordination; RxIT = prescribed fire 

implementation team; RXMG = prescribed fire manager.

* The current “Standards for Prescribed Fire Planning and Implementation” (NWCG 2022) states each 

prescribed fire will have an appropriately qualified RxBB based on the prescribed fire burn plan 

complexity analysis.

** As of November 2022, agency administrator qualifications for prescribed fire and suppression are 

distinct and separate. AA qualifications for prescribed fire are now RXA1, RXA2, RXA3. This will require 

an update to the “Standards for Prescribed Fire Planning and Implementation” (NWCG 2022).

Features and Considerations—Focus on Coordination

Command structures will include multiple administrative units/AAs. The regional forester(s)/regional forester’s 

representative(s) will be engaged and interacting with Fire and Aviation Management (FAM) leadership.

•	 The RxIT (with an RXMG/RxBB in the command structure) is formalized to provide implementation and 

oversight of support functions in one or more landscape or sublandscape levels (refer to tier 3).

•	 The role of the multi-mission coordination system expands to include RxCS operating within the 

Geographic Multi-Agency Coordination (GMAC) group.

•	 Significant mobilization of nonlocal resources is likely.

Rx Fire Burn Boss* Rx Fire Burn Boss* Rx Fire Burn Boss*

Local Burn 

Organization

Local Burn 

Organization

Local Burn 

Organization

Agency 

Administrator

(AA#1)**

Agency 

Administrator

(AA#2)**

Regional Fuels

Regional Operations 

or Duty Officer

RXMG

RxIT RxBB*

RXMG

RxIT RxBB*

GMAC with Prescribed 

Fire Coordination System 

(RxCS)

Regional Forester 

(or Representative)

Lines of authority

Coordination flow

Staffed as needed

Landscape #1 Landscape #2
8 

Rx Fire 

Burn Boss*

Agency 

Administrator

(AA#4)**

RXMG

RxIT RxBB*

Rx Fire 

Burn Boss*

Agency 

Administrator

(AA#2)**

RXMG

RxIT RxBB*

NMAC with 

RxCS

Regional Forester #1

(or Representative)

Regional Forester #2

(or Representative)

GMAC with RxCS GMAC with RxCS

RXMG

RxIT RxBB*

Agency 

Administrator

(AA#1)**

Rx Fire 

Burn Boss*

Rx Fire 

Burn Boss*

RXMG

RxIT RxBB*

Agency 

Administrator

(AA#3)**

Rx Fire 

Burn Boss*

Rx Fire 

Burn Boss*

Landscape #1

Landscape #2

Landscape #3

Landscape #4

Lines of authority

Coordination flow

Staffed as needed

TIER 1 : NATIONAL LEVEL MULTI-MISSION COORDINATION

Figure 5.—Tier 1 organization; GMAC = geographic multi-agency coordination; 

NMAC = National Multi-Agency Coordination; RxCS = prescribed fire coordination system; 

RxIT = prescribed fire implementation team; RXMG = prescribed fire manager.

* The current “Standards for Prescribed Fire Planning and Implementation” (NWCG May 2022) 

states each prescribed fire will have an appropriately qualified RxBB based on the prescribed fire 

burn plan complexity analysis.

** As of November 2022, agency administrator qualifications for prescribed fire and suppression are distinct and separate. AA qualifications for 

prescribed fire are now RXA1, RXA2, RXA3. This will require an update to the “Standards for Prescribed Fire Planning and Implementation” 

(NWCG May 2022).

Features and Considerations—Focus on Coordination

Command structures will include multiple administrative units/AAs. The regional forester(s)/regional forester’s 

representative(s) will be engaged and interacting with FAM leadership.

•	 RxCS has become national in scope and is operating within the National Multi-Agency Coordinating 

(NMAC) group in addition to operating within multiple GMACs. Communication and coordination are 

needed to address and plan for best resource allocation to mitigate potential shortages or conflicts.
9

PRESCRIBED FIRE IMPLEMENTATION TEAM 

FUNCTIONAL CONSIDERATIONS 

1

 Interagency Resource Ordering Capability query, November 2022.

As the need for support beyond formal RxITs 

is identified, ad hoc complex implementation 

organizations would be developed. These 

considerations are intended to provide perspective 

when filling positions in various functional areas. 

More detailed information for each of the C&G 

functions can be found in appendix A.

INCIDENT COMMAND 

The incident commander, which in the case of 

the RxIT is a prescribed fire manager (RXMG) or 

prescribed fire burn boss (RxBB), is recommended to 

be filled as described below to best serve acceptable 

risk and risk ownership at the appropriate level:

•	 RXMG: The incident position description (IPD) 

aligns perfectly with RxIT oversight (per IPD: 

An RXMG may be assigned during periods when 

multiple simultaneous prescribed fires are being 

conducted; when multiple prescribed fires will 

be conducted within a short time; or when there 

are numerous coordination activities with other 

organizations), although using an RXMG is not 

required per PMS 484 (“Standards for Prescribed 

Fire Planning and Implementation,” see NWCG 

2022). The RXMG is an underutilized role which 

is limited in qualified personnel (approximately 

60 within the Forest Service).1 The position 

is intentionally included in the organization 

examples, as its use would build national capacity, 

and efforts should be made to increase the number 

of qualified personnel within the agency.

•	 RxBB: A prescribed fire burn boss with current 

qualifications at the appropriate complexity 

level. When assigned to implement a specific 

burn, the RxBB must be qualified at or above 

that complexity level. When assigned as an RxIT 

leader to coordinate implementation of multiple 

burns at varying complexity levels, qualification 

at or above the highest complexity level being 

implemented is recommended (e.g., if a lowcomplexity project and a moderate-complexity 

project are being implemented, an RxIT leader 

at the RXB2 or higher level is recommended; if 

three moderate-complexity prescribed burns are 

being conducted, an RXB2 can serve in the role; 

if a high complexity burn is included, an RXB1 is 

recommended).

•	 Duty officers (DOs): While commonly used in 

wildfire preparedness and suppression, DOs often 

do not carry the same level of prescribed fire 

expertise, experience, or background and are not 

recommended to fill this leadership role unless 

they also carry the RXMG or recommended RxBB 

qualification.

The RXMG or RxBB is responsible for ensuring the 

C&G functions are adequately staffed to accomplish 

the objectives. This could include adding one or more 

support functions (e.g., planning, public information). 

The persons performing in those added functions 

would in turn consider the needs and scale functional 

staffing appropriately.
10 

PUBLIC INFORMATION

The local unit public affairs officer is often relied 

upon to provide support for low-complexity wildfires; 

however, this approach may not be successful when 

units begin to significantly expand prescribed burn 

programs. Social and cultural factors may dictate that 

even for a low-complexity burn, one or more public 

information officers (PIOs) are required. These PIOs 

can be ordered with the specialized communication 

expertise needed and assigned to address complex 

issues including smoke sensitivity and lack of 

familiarity with prescribed burning in affected 

communities.

Most of the national forests responsible for prescribed 

fire within the 21 landscapes identified in the 

Wildfire Crisis Strategy are engaged with 1 or more 

collaborative organizations. These collaboratives 

provide a foundation for stakeholder engagement in 

prescribed fire management. If an implementation 

schedule were developed, the public information 

function could be staffed in advance of anticipated 

burn windows to supplement ongoing outreach and 

collaboration efforts.

SAFETY

The safety function is likely to be scaled up in 

response to multiple influencing factors such 

as air operations, topography, accessibility, 

communications, ignition operations, identified 

hazards, and medical response capabilities. When the 

operations function has expanded significantly, safety 

staffing would likely increase as well.

OPERATIONS

The operations function is likely to be scaled up to 

manage span of control or other issues. One or more 

operations positions ranging from single resource 

boss to branch director could be used to provide 

oversight to firing (ground and/or aerial), holding, 

and/or contingency resources. On less complex burns 

there may only be a need for minimal operational 

resources such as a firing boss and holding resources, 

while on large-scale or high-complexity burns, 

multiple levels of oversight may be in place to 

manage aviation assets or ground resources organized 

into divisions, groups, and branches.

PLANNING

The local unit, GACC Predictive Services, and 

National Weather Service offices are sources of 

support for specific tasks like geographic information 

systems (GIS), mapping, smoke modeling, and fire 

weather and behavior information. For projects at 

a larger scope or higher complexity, one or more 

personnel to manage planning functions, such 

as resource tracking and developing an incident 

action plan (IAP), may be added. For longer 

duration or higher complexity burns, the RxIT may 

require dedicated support for mapping, modeling, 

accomplishment reporting, and other tasks and would 

expand accordingly. A training specialist may also be 

assigned to coordinate opportunities and ensure that 

documentation of training experience is complete. 

The planning function should be scaled in size and 

skillset to ensure the needs of the project(s) are met.
11

LOGISTICS

Logistics support includes management of facilities, 

food, supplies, communications, equipment, and 

medical and security needs. Logistics staffing 

would quickly expand with increases in numbers 

of personnel, travel distances, and locations to 

be supported. It is difficult to effectively support 

implementation if the needs are unknown or 

underestimated. Proactively identifying the need for 

complex logistical coordination and support before 

issues emerge would allow the logistics organization 

to be adequately expanded.

FINANCE

The administrative staff from the local unit is often 

relied upon for any necessary finance support, which 

is minimal when only local resources performing 

regular job duties are assigned.

If the scope and scale of activity escalates to include 

off-unit, administratively determined (AD), and/or 

contracted resources, it is likely that a finance section 

of at least one person would be needed to address 

cost tracking, time recording, and other functions 

associated with fire suppression.

Finance processes are expected to parallel those 

used in wildfire suppression, and currently qualified 

finance personnel (e.g., time recorders, cost unit 

leaders) would gain proficiency in managing these 

functions for prescribed fire. The software used in 

wildfire suppression (e-ISuite) can be adapted to 

meet specialized prescribed fire reporting needs. 

Coordination with budget and administrative staff 

would be required to ensure that funds monitoring, 

data collection, and other processes are tailored to 

meet agency reporting and funds tracking needs.

Prescribed fire projects have historically been funded 

using allocations to specific units for identified 

projects. If projects are combined or expanded, 

appropriate job codes would need to be identified 

and additional funding may be needed. A process to 

identify resource needs and request supplemental 

funding could mirror the process currently used to 

request severity funding for wildfire suppression. 

Prescribed fire funding appropriations also have 

limitations on use that result in complications to both 

acquisition of services via contracts and agreements 

and the use of AD employees, cooperators, and 

interagency personnel. Forest Service equipment and 

personnel including both fire and militia employees 

have been relied upon to provide necessary resources 

for project implementation; however, it is unlikely 

that the agency can significantly expand the pace and 

scale of prescribed fire without access to resources 

from outside the agency.

While authorities exist to hire AD personnel and to 

establish contracts and agreements for prescribed 

fire projects, significant restrictions and extended 

timeframes for implementation have historically 

made the processes less effective and efficient when 

compared to the authorities available to acquire 

suppression resources. Using existing agreements 

via modifications and/or supplemental project 

agreements may be an effective alternative to access 

resources with relevant skills and knowledge of 

agency policies (e.g., ACES, Job Corps). As efforts 

continue to establish or expand opportunities to use 

contracted and nonagency resources for prescribed 

fire, there may be changes to financial management at 

the project level, which will require clear and timely 

communication between all levels of support.
12 

PRESCRIBED FIRE PRIORITIZATION

A prescribed fire prioritization decision support 

process and associated tools (see appendix B) were 

developed to facilitate selection of the right site 

investments, at the right time, and with the right 

resources to conduct Rx burns on a landscape. 

Designed to be scalable and flexible for use at the 

local, zone/subgeographic, geographic, or national 

level, this process could be used when resource needs 

are elevated or when potential shortages exist.

The three tools for the decision support process 

include a timing matrix that identifies potential burn 

windows and periods of potential resource shortages; 

a worksheet that assigns a rating for decision makers; 

and a conference call conversation among decision 

makers to validate and prioritize implementation. 

Refer to appendix B for the specific tools and 

guidelines for use.

Rather than producing a final determination for 

prioritization, the process informs conversation to 

support prioritization decisions. It is critical that 

decision makers remain flexible to nuances not 

fully captured in any rating mechanism. Ultimately, 

available resources would be allocated to maximize 

acres treated in high-priority areas.

The “Rx Fire Implementation Timing Matrix” 

identifies periods of conflicting resource availability. 

During times that resource demand is high, the “Rx 

Fire Implementation Prioritization Worksheet” can 

be used to assist decision making relative to resource 

allocation.

The “Rx Fire Implementation Prioritization 

Worksheet” provides information that assists in 

ranking treatment areas. Aligned with the wildfire 

multi-agency coordination (MAC) concept and 

adjusted for prescribed fire criteria, the worksheet 

emulates familiar processes and would integrate 

seamlessly into prescribed fire programs. Numerical 

ratings are based on multiple criteria, including the 

prescribed fire objectives (with a focus on those 

that align with agency policies related to hazard 

fuel reduction, wildland-urban interface, national 

firesheds, etc.). It uses the best available science 

and analytics found on the Risk Management 

Assistance (RMA) Dashboard and includes a 

variety of weighted contributing factors, such as 

the utilization of grant programs; fiscal sources and 

duration of funding; cross-boundary collaboration 

and community engagement; collaboration with 

Tribal, State, Department of the Interior (DOI), and 

other partners; biological considerations; and social 

interdependencies.

The information collected and rated using the “Rx 

Fire Implementation Prioritization Worksheet” could 

also be displayed geospatially. An ArcGIS Online 

(AGOL) layer showing landscape-scale prescribed 

fire unit polygons with associated attribute tables and 

ratings displayed on a map may assist information 

sharing and resource allocation decisions. This 

product could capture accomplishments in near-realtime and could be shared on the RMA Dashboard, 

providing a timely, easy-to-access service not 

currently available through the Forest Activity 

Tracking System (FACTS). It could also be expanded 
13

to include additional landscapes or prescribed fire 

work outside of these areas.

The “Rx Fire Prioritization Conference Call” helps 

identify resource needs, duration of needs, and 

resource availability. Managers of potential prescribed 

fire units discuss unique challenges and opportunities 

to validate or adjust initial ratings and prioritize 

treatment area implementation. Information gathered 

and displayed during the process is shared among 

decision makers and implementers for operational 

support and resource allocation. Other leadership/

coordination entities or subject matter experts may 

participate in the call to add insight. These can 

include Predictive Services personnel, fire behavior 

analysts, incident meteorologists, or others.

The “Rx Fire Prioritization Conference Call” follows 

the concepts currently used by MAC groups at 

subgeographic, geographic, and national levels to 

address wildfire support successfully and efficiently. 

These calls would provide a forum for the multimission interaction that would best serve prescribed 

fire implementation. It is likely that during periods 

of potential competing resource demands between 

wildfire response and prescribed fire implementation, 

the conversations will be critical to understand and 

manage the full scope of needed resources for both 

prescribed and wildfire management.

ADDITIONAL FACTORS

MOBILIZATION

The “National Prescribed Fire Program Review” 

(USDA September 2022) stated an intent to 

mobilize more resources—such as qualified militia, 

contractors, and resources used for suppression—to 

support increased prescribed burning across large 

landscapes. Challenges exist when mobilizing these 

resources; however, none are system problems per 

se. For example, many Forest Service suppression 

resources already manage a heavy workload in 

wildfire response, which limits availability for other 

assignments. Most existing contracts for equipment 

and crews do not include provisions for prescribed 

fire work.

Cooperators and partners could be mobilized, but 

agreements need to be established and/or modified 

to expedite and simplify their use. More detailed 

information regarding potential limitations to 

mobilization and possible solutions to increase 

available resources for prescribed fire implementation 

is included in appendix C.

WORKFORCE DEVELOPMENT

Currently the National Interagency Prescribed 

Fire Training Center and the Forest Service Fuels 

Academy offer curriculums that combine classroom 

training and experiential learning to develop 

prescribed fire expertise. Successful implementation 

of this mobilization strategy will require an expansion 

of both programs.
14 

National Interagency Prescribed Fire Training 

Center (NIPFTC) and Western Prescribed Fire 

Training Center (PFTC-West)

The NIPFTC programs blend prescribed burning 

experience with foundational topics for prescribed 

fire practitioners, fire managers, and agency 

administrators. Emphasis is placed on field 

experience, providing maximum opportunities to 

build prescribed fire skills and knowledge.

The “National Prescribed Fire Program Review” 

(USDA September 2022) states, “By January 1, 2023, 

we will establish a Western Prescribed Fire Training 

curriculum with the interagency fire and research 

community, and partners, to expand the successes of 

the NIPFTC. This curriculum would incorporate the 

knowledge and experience of Tribes, partners, and 

communities and include a strategy of training and 

developing skills together so we can build collective 

capacity to expand the use of prescribed burning on 

National Forest System and other lands.”

The PFTC-West initiative is an opportunity to expand 

the current NIPFTC program to include prescribed 

fire training in western terrain and fuel types. 

Participants will have the benefit of experiential 

learning in environments where priority projects are 

planned.

Forest Service Fuels Academy

The Fuels Academy provides a structured 3-year 

training and development program designed primarily 

for entry-level fuels specialists, with a target group 

size of up to 20 participants. The next group is 

currently scheduled for fiscal year 2024.

WHAT IT WILL TAKE

•	 Create position descriptions for RxIT positions 

(burn boss, operations, safety, logistics, public 

information, planning, and finance) to support the 

implementation plan.

•	 Develop a national fire management multi-mission 

coordination system encompassing prescribed 

fire, naturally occurring wildfire for resource 

benefits, and wildfire missions. This group would 

address interagency coordination of prescribed 

fire and allocation of operational resources among 

prescribed fire implementation and competing 

wildfire priority needs. Issues exist around cache 

support, logistical assets, mobilization, and 

mission availability.

•	 Incorporate the RxCS into the National Wildfire 

Coordination System (NWCS) including:

▫ Use of the prioritization system in appendix B

▫ Adding a prescribed fire coordinator to each 

established MAC group in alignment with 

existing coordination systems and processes at 

all levels (local to national)

•	 Use the Interagency Resource Ordering Capability 

(IROC) system and associated processes for 

wildfire and other incident response for a yearround inventory of qualified resources available 

for prescribed fire assignments.

•	 Integrate wildfire suppression processes related 

to budget, grants and agreements, contracting, 

payment processing, and other financial concerns 

into prescribed fire implementation.
15

•	 Update PMS 484 to incorporate language 

addressing or including intent for emerging 

concepts identified during this strategy 

development. PMS 484 does not currently include 

any language related to the RxIT (and leadership 

roles within it), RxCS (the role in multi-mission 

coordination), or the updated AA qualifications.

•	 Create virtual prescribed fire planning and 

development teams to implement projects within 

Wildfire Crisis Strategy landscapes and other areas 

in need of prescribed fire. These teams could fill 

the planning gap between NEPA decisions and 

prescribed fire implementation with a prescribed 

fire planner, project manager, and data manager/

GIS expert.

•	 Effectively address identified issues related to 

resource availability and usage, including:

▫ Overtime and hazard pay

▫ Contracts and agreements

▫ Hiring authorities

REFERENCES

Berg, N.H., technical coordinator. 1989. Proceedings of the symposium on fire and watershed management. 

Gen. Tech. Report PSW-109. Berkley, CA: [U.S. Department of Agriculture, Forest Service], Pacific 

Southwest Forest and Range Experiment Station. 168 p. https://doi.org/10.2737/PSW-GTR-109.

Delcourt, P.A., et.al. 1999. Forests, forest fires, and their makers: The story of Cliff Palace Pond. Kentucky 

Heritage Council. 32 p. https://www.fs.usda.gov/Internet/FSE_DOCUMENTS/stelprdb5276203.pdf.

National Wildfire Coordinating Group [NWCG]. May 2022. Standards for prescribed fire planning and 

implementation. PMS 484. 51 p. https://www.nwcg.gov/sites/default/files/publications/pms484.pdf.

USDA Forest Service. January 2022. Confronting the wildfire crisis: a strategy for protecting communities and 

improving resilience in America’s forests. FS-1187a. [Washington, DC: U.S. Department of Agriculture, 

Forest Service, Washington Office]. 48 p. https://www.fs.usda.gov/sites/default/files/Confronting-WildfireCrisis.pdf.

USDA Forest Service. April 2022. Confronting the wildfire crisis: initial landscape investments. FS-1187d. 

[Washington, DC: U.S. Department of Agriculture, Forest Service, Washington Office]. 32 p. https://www.

fs.usda.gov/sites/default/files/WCS-Initial-Landscape-Investments.pdf.

USDA Forest Service. September 2022. National prescribed fire program review. [Washington, DC: U.S. 

Department of Agriculture, Forest Service, Washington Office]. 107 p. https://www.frames.gov/documents/

usfs/USFS_20220908_National-Prescribed-Fire-Program-Review.pdf.
16 

LIST OF ACRONYMS AND ABBREVIATIONS

ACRONYM/

ABBREVIATION MEANING

AA agency administrator

ACES Agriculture Conservation Experienced Services

AD administratively determined

C&G command and general staff

DO duty officer

DOA delegation of authority

DOI Department of the Interior

FACTS Forest Activity Tracking System

FAM Fire and Aviation Management

G&A grants and agreements

GACC Geographic Area Coordination Center

GIS geographic information system

IC incident commander

ICS incident command system

IMT incident management team

IROC Interagency Resource Ordering Capability

LSC logistics section chief

MAC multi-agency coordination

NEPA National Environmental Policy Act

NGO nongovernmental organization

NICC National Interagency Coordination Center

NIPFTC National Interagency Prescribed Fire Training Center

NMAC National Multi-Agency Coordinating group

PFTC Prescribed Fire Training Center

PFTC-West Western Prescribed Fire Training Center

PMS 484 Standards for Prescribed Fire Planning and Implementation

RMA risk management assistance

RXA1/RXA2/RXA3 prescribed fire agency administrator type 1/2/3

RXB1/RXB2/RXB3 prescribed fire burn boss type 1/2/3

RxBB prescribed fire burn boss

RxCS prescribed fire coordination system

RxIT prescribed fire implementation team

RXMG prescribed fire manager

TES threatened and endangered species

UTF unable to fill

WUI wildland-urban interface
17

APPENDIX A: RXIT STAFFING

CONSIDERATIONS BY FUNCTION

INCIDENT COMMAND

•	 Prescribed fire manager (RXMG)

▫ If multiple prescribed fire projects are to be 

implemented, identify opportunities to utilize 

this position to maintain and build depth in the 

agency workforce.

•	 Prescribed fire burn boss, type 1, 2, and 3 (RXB1, 

RXB2, RXB3)

▫ Types correspond to burn complexity levels of 

high, moderate, and low

▫ Assigned burn boss must be qualified at or 

above burn complexity level

▫ Recommend trainee be assigned if available

▫ May transition management for monitoring/

patrol/mop-up phase

INFORMATION

The following proposed organization for the 

public information function is an example of what 

an RxIT could use to successfully staff for burn 

implementation days:

•	 Lead public information officer (PIO) (trainee 

acceptable)

•	 Multiple PIOs (any qualification (type 1, 2, 3 

or complex (C))) to accomplish community 

engagement work

•	 Two-person audio/visual team with editing 

capability (could be any type of PIO, a contractor, 

or a technical specialist with those skills, and 

should be line-capable or paired with a linecapable escort)

The Redding Interagency Dispatch Center hosts both USDA Forest Service and 

the State of California dispatch. USDA Forest Service photo by Jim Bartlett.
18 

Additionally, the following products and capabilities 

would help public affairs and community engagement 

efforts when conducting prescribed fires on 

landscapes identified in the Wildfire Crisis Strategy:

•	 Clear and consistent messaging incorporating 

regional and national office talking points

•	 Basic smoke education products

•	 News release templates

•	 Story map templates

•	 InciWeb support

•	 PIO(s) with audio/visual technical expertise

•	 Skilled writer(s) to create press releases and 

updates

•	 Sanctioned email distribution software

•	 Everyday public affairs support as needed

OPERATIONS

•	 Firing Boss (FIRB)

▫ Multiple FIRBs may be assigned depending 

on size and complexity (e.g., aerial and ground 

divisions).

▫ The FIRB manages assigned resources 

including engines, crews, and others to 

coordinate and execute planned ignition across 

a unit and hold fire within established control 

lines.

•	 Aviation

▫ Airspace coordinator: Position may be shared 

at forest, zone, or regional levels, as aviation 

resources are likely to be shared across 

landscapes.

▫ Helibase/helicopter manager: Either or 

both may be required depending on level of 

helicopter staffing.

▫ Unmanned aircraft systems (UAS) module(s) 

may be used for limited aerial firing 

and/or for reconnaissance. Use must be 

closely coordinated with other aviation assets.

▫ Helitorch modules may be used for aerial 

firing.

▫ Plastic sphere dispenser operator (PLDO) may 

be needed for aerial firing.

▫ Local or alternative base of operations may 

need to be established for effective support of 

firing operation.

▫ Dip sites may need to be identified as part of a 

contingency plan.

•	 Holding

▫ Single resource boss(es) and/or task force 

leader(s)

•	 Contingency

▫ Must meet the minimum defined in burn plan

▫ May be supplemented by resources identified 

for initial attack

▫ Reporting location identified and known to all

PLANS

The following positions/skills can be staffed and 

scaled as needed:

•	 Planning section chief type 1, 2, 3, or complex (C) 

(PSC1, PSC2, PSC3, or PSCC)

•	 Resource unit leader (RESL)

•	 Situation unit leader (SITL)

▫ Fire behavior analyst (FBAN)

▫ Long-term fire analyst (LTAN)

▫ Incident meteorologist (IMET)

▫ GIS specialist (GISS)

•	 Training specialist (TNSP)

•	 Incident technology support specialist (ITSS), if 

not provided by logistics section
19

LOGISTICS

There are specific logistics staffing and qualification 

requirements that must be met to use some resources. 

Examples include:

•	 A communications unit leader (COML) or 

communications technician (COMT) is required 

to receive and manage communications equipment 

(repeaters, radios, etc.) ordered from the National 

Interagency Fire Center (NIFC).

•	 Mobile shower unit (MSU) and mobile 

food service unit (MFSU) national contracts 

will be available for prescribed fire project 

implementation in 2023. For an MFSU, a food 

unit leader (FDUL) or logistics section chief 

(LSC) is required to sign invoices, approve food 

menus, and ensure contract provisions are met. A 

facilities unit leader (FACL) or LSC is required to 

sign invoices for an MSU.

Other potential positions include:

•	 LSC3/FACL: Consider sanitation needs that must 

be managed and whether more than one person is 

needed.

•	 Receiving and distribution manager (RCDM): 

Consider if significant cache support required.

•	 Ordering manager (ORDM): The ORDM needs to 

be proficient in IROC.

•	 COML/COMT: Consider if a separate 

communications network is required.

•	 Equipment manager (EQPM): Consider if weed 

wash and/or vehicle inspections will be required.

Additional logistical considerations:

•	 Water and meal support

•	 Fuel tender

•	 Medical resources including ambulance and/

or medical personnel for the fireline such as 

emergency medical technician (EMTF) or 

paramedic (EMPF)

•	 Land use agreements (to include helispots)

•	 Network/internet and technology support 

including an incident technology support specialist 

(ITSS)

FINANCE

Additional considerations and potential positions to 

be filled:

•	 Incident business advisor/specialist

▫ Knowledge of Forest Service prescribed burn 

policies and funding needed

•	 Finance section chief type 1, 2, 3, or complex (C) 

(FSC1, FSC2, FSC3, or FSCC)

▫ Consider staffing one or more of the unit 

leader positions (e.g., cost unit leader (COST), 

time unit leader (TIME), procurement unit 

leader (PROC), compensation/claims unit 

leader (COMP)) if needed to match to the 

scale of project.

▫ Consider using personnel time recorders 

(PTRCs) and/or equipment time recorders 

(EQTRs) depending on number and type of 

resources.

▫ Consider options for virtual support—the 

COMP is a good example of a potentially 

virtual position.

•	 A micropurchaser and access to contracting 

officer/purchasing agent for procurement needs 

may be needed. These positions can be virtual.
20 

APPENDIX B: PRESCRIBED FIRE 

PRIORITIZATION DECISION SUPPORT 

PROCESS

The prescribed fire prioritization decision support 

process includes three components: (1) a timing 

matrix to identify potential burn windows and periods 

of potential resource shortages; (2) a prioritization 

worksheet that assigns a point rating for decision 

makers; and (3) a conference call to validate, 

compare, and prioritize implementation projects. 

These projects are also called treatment areas and the 

terms are used interchangeably in this appendix.

The tools in this appendix are also available in a 

printable, fillable Excel document on the Forest 

Service website. <https://www.fs.usda.gov/sites/

default/files/Rx-Fire-Implementation-Tools.xlsx>

RX FIRE IMPLEMENTATION 

TIMING MATRIX

The “Rx Fire Implementation Timing Matrix” 

shown below is an example of a tool used to 

identify potential periods of heightened resource 

competition across multiple landscapes. Potential 

burn implementation windows are identified using 

three categories (favorable, limited opportunity, 

and nonfavorable) based on burn objectives and 

historical weather/seasonality for the land bases. The 

matrix shows collective burn window alignment and 

highlights potential times of high resource demand 

for prescribed fire implementation. During times of 

high resource demand, the “Rx Fire Implementation 

Prioritization Worksheet” can be used to assist 

prioritization decisions.

Landscape or AreaNFsJanuaryFebruaryMarchAprilMayJuneJulyAugustSeptemberOctoberNovemberDecember

Landscape 1 ABC

Landscape 2 DEF

Landscape 3 GHI

Prescribed Fire Implementation Timing Matrix

Nonfavorable for Rx fire implementation

Limited opportunity for Rx fire implementation

Favorable for Rx fire implementation
21

RX FIRE IMPLEMENTATION 

PRIORITIZATION WORKSHEET

The “Rx Fire Implementation Worksheet” can be 

completed at the unit level, before the fire season or 

before implementing prescribed fire, for each planned 

project and can be updated as needed. It is used by 

decision makers to prioritize project implementation 

in landscapes that have conflicting resource needs and 

provides information to assist in ranking treatment 

areas based on agreed upon criteria. Rather than 

producing a final determination for prioritization, 

the numeric ratings inform conversation between 

decision makers as they move ahead to support 

implementation. It is critical they remain flexible to 

nuances not fully captured in any rating mechanism. 

Ultimately, the worksheet is one of several tools 

used in the process of allocating available resources 

to maximize acres treated in high-priority treatment 

areas.

RX FIRE PRIORITIZATION 

CONFERENCE CALL

Conduct conference calls for prescribed fire 

prioritization as needed during periods of increased or 

competing resource needs with representatives from 

units with projects in competing burn windows. The 

call helps to identify resource needs, duration, and 

availability and provides a forum to discuss unique 

challenges and opportunities. Information shared 

and collected during this call is used to validate and 

prioritize Rx fire implementation in treatment areas.

Ideally, each unit would complete and submit a “Rx 

Fire Implementation Prioritization Worksheet” for 

each project prior to the call; however, information 

could also be collected during the call. Each unit 

should also be prepared to report and discuss the 

following:

•	 Prior period (e.g., week, month) accomplishments

•	 Upcoming Rx fire implementation

•	 Resources available at the local level for 

implementation 

•	 Resource orders placed

•	 Critical needs projected

Information is collated for use by decision makers 

to assign implementation priorities and operational 

support. The prioritization worksheets are used to 

complete the “Treatment Area Priority Summary 

Rating Matrix,” and information collected during 

the call regarding resource needs and availability 

is used to complete the “Treatment Area Resource 

Prioritization” worksheets. When assigning an 

overall ranking between projects, the points from 

the worksheet are considered, but do not dictate 

that the highest score will be the highest priority. 

All information collected is considered by decision 

makers in the prioritization process.
22 

RX FIRE IMPLEMENTATION PRIORITIZATION WORKSHEET

Page 1 of 2

Directions: In each section, mark all boxes that apply to the project. Transfer point values to the “Treatment 

Area Priority Summary Rating Matrix” for comparison between projects.

OBJECTIVES/INTENT MAXIMUM 23 POINTS (PTS)

Agency expectations for priority implementation include (1) aligning public investments in fuel treatments that 

capitalize on risk reduction activities, (2) exhibiting demonstrable risk reduction activities for communities and 

landowners in the wildland-urban interface, and (3) promoting landscape-scale activities that address creation 

and maintenance of resilient landscapes.

A. TREATMENT AREA INTENT POINTS:

	 Wildland-urban interface (3 pts)

	 Hazard fuel reduction (2 pts)

	 National fireshed (3 pts)

	 Ecological/Restoration (1 pt)

	 Maintenance prescribed fire (1 pt)

	 Scale (1,000 acres or more) (2 pts)

B. CRITICAL VALUES AT RISK THAT 

DRIVE TREATMENT POINTS:

	 Quantitative wildfire risk assessments (high to 

very high)* (1 pt)

	 Critical infrastructure (high to very high)* (1 pt)

	 Watershed (high to very high)* (1 pt)

	 Remote infrastructure (high to very high)* (1 pt)

	 Wildland-urban intermix (1 pt)

	 Housing density (purple)* (1 pt)

	 Highway corridor (1 pt)

	 Tribal/Cultural/Heritage (site protection/flora/

fauna) (1 pt)

	 Public water source (high to very high)* (1 pt)

	 Tribal incorporation of traditional ecological

knowledge (2 pts)

* Refer to the Risk Management Assistance (RMA) Dashboard, used for fire and fuels planning: 

 https://experience.arcgis.com/experience/f9d7f7f920494c3db43a23a8dffe4664
23

C. ADDITIONAL FACTORS FOR CONSIDERATION MAXIMUM 25 POINTS (PTS)

Contributing factors that tier to national prioritization include (1) better utilization of grant programs; 

(2) cross-boundary collaboration and community engagement; and (3) collaboration with Tribes (Tribal Forest 

Protection Act), State entities (Good Neighbor Authority), and other partnerships.

C.1 JURISDICTIONAL INVESTMENT (OWNERSHIP 

OF TREATMENT AREA(S) IN PROJECT) POINTS:

	 DOI agency partnership (1 pt)

	 Multiple agency implementation resources 

utilized (1 pt)

	 Tribal partnership (1 pt)

	 State agency partnership (1 pt)

	 Local government agency partnership (1 pt)

	 Ready to implement 2–3 Rx burns (1 pt) OR 

4+ Rx burns (3 pts) 

C.2 FUNDING SOURCES (MAINTAIN OR IMPROVE 

FUELS INVESTMENTS FROM PREVIOUS 5 YEARS) POINTS:

	 Partnership funds (e.g., Joint Chiefs, NGO) (1 pt)

	 Contracts (limitations) (1 pt)

	 Agreements (limitations) (1 pt)

	 Funding duration/expiration (<2 years) (2 pts)

OR 3–5 years (1 pt)

	 Grants (limitations) (1 pt) 

C.3 TIMING RESTRICTIONS POINTS:

	 Biological deadlines (e.g., TES concerns) (1 pt)

	 Pathogens/Disease (root rot, insects) (1 pt)

	 Sociopolitical restrictions (1 pt)

	 Seasonal/Event restrictions (local events which 

could be impacted) (1 pt)

C.4 SMOKE LIMITATIONS POINTS:

	 Class 1 airshed (timing) (1 pt)

	 Nonattainment areas (1 pt)

	 Critical infrastructure (railroad/highway/utility 

lines) (1 pt)

C.5 COMMUNITY RECEPTIVITY POINTS:

	 Functioning prescribed fire fuels collaborative/

coalition (3 pts)

	 Public information management (public 

meetings, social media/press) (1 pt)

D. TREATMENT AREA TOTAL POINTS:

DOI = Department of the Interior; NGO = nongovernmental organization; TES = threatened and endangered species

Page 2 of 2
24 

TREATMENT AREA OVERALL RANKING 1 2 3 4 5 6

Local government agency partnership

Tribal partnership

Multiple (4+) Rx fires ready to implement

C.2. Funding Sources

Partnership funds (e.g., Joint Chiefs, NGO)

Contracts (limitations)

Funding duration/expiration (<2 years)

Grants (limitations)

Agreements (limitations)

Funding duration/expiration (3–5 years)

C.3. Timing Restrictions

Biological deadlines (e.g., TES concerns)

Pathogens/Disease (root rot, insects)

Sociopolitical restrictions

Seasonal/Event restrictions

C.4. Smoke Limitations

Class 1 airshed

Nonattainment areas

Critical infrastructure (railroad/highway/utility lines)

C.5. Community Receptivity

Functioning prescribed fire fuels collaborative/coalition

Public information management (public meetings, 

social media/press)

D. TOTAL TREATMENT AREA POINTS 

TREATMENT AREA PRIORITY SUMMARY RATING MATRIX DATE

Directions: Transfer point values from the “Rx Fire Prioritization Worksheet” for each project/treatment area. Overall ranking may be affected by factors other than worksheet points.

TREATMENT AREA OVERALL RANKING 1 2 3 4 5 6

TREATMENT AREA NAME

A. Treatment area intent

Wildland-urban interface

Hazard fuel reduction

National fireshed

Ecological/Restoration

Maintenance prescribed fire

Scale (1,000 acres or more)

B. Critical values at risk that drive treatment

Quantitative Wildfire Risk Assessments

Critical infrastructure

Watershed

Remote infrastructure

Wildland-urban intermix

Housing density

Highway corridor

Tribal/Cultural/Heritage (site protection/flora/fauna)

Public water source

Tribal incorporation of traditional ecological knowledge

C. Additional Factors for Consideration

C.1. Jurisdictional Investment

DOI agency partnership

Multiple agency implementation resources utilized

Multiple (2–3) Rx fires ready to implement

State agency partnership
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TREATMENT AREA RESOURCE PRIORITIZATION DATE:

TREATMENT AREA OVERALL RANKING 1 2 3 4 

TREATMENT AREA NAME

Resources Number 

Required*

Projected 

need** 

Number 

Required

Projected 

need

Number 

Required

Projected 

need

Number 

Required

Projected 

need

Number 

Required

Agency administrator

Prescribed fire manager

Burn boss

Firing boss

Aircraft, rotor, or UAS

Bulldozers

Engine type 3

Engine type 4

Engine type 6

Crews (type 1)

Crews (type 2)

Wildland fire module

FBAN or IMET

Public information/affairs support

Other resources kinds & types

Overhead

Prescribed fire implementation team (RxIT)

Logistical support (caterer/showers)

Cache items
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APPENDIX C: MOBILIZATION 

INTRODUCTION

A team including fire management officers, 

hotshot crew superintendents, regional fire 

operations specialists, dispatchers and dispatch 

coordinators, contracting officers, contracting officer 

representatives, Interagency Resource Ordering 

Capability (IROC) subject matter experts, and 

Washington Office Fire and Aviation Management 

(FAM) personnel was formed to explore mobilization 

challenges and to identify potential solutions to 

those. The team reached out to additional groups and 

individuals to capture a broad range of perspectives 

and experience levels in addressing specific issues, 

including both entry-level firefighters and line 

officers. The primary challenge identified was not the 

mobilization system itself, but the lack of available 

resources. This is attributed to both a reduced 

availability of Forest Service resources and the 

inability to use partner, cooperator, and nationally 

contracted resources for prescribed burning.

RESOURCE AVAILABILITY

The current model relies heavily on a time-consuming 

process of direct communication and coordination 

between fire management officers (FMOs), agency 

administrators (AAs), and others to identify available 

resources prior to placing resource orders as “named 

requests” in IROC. Few orders are currently placed 

as open orders (no name attached) in the dispatch 

system. Reports from IROC show that nearly half 

of the orders placed were named requests. Data was 

requested for review from the National Interagency 

Coordination Center (NICC) regarding both filled 

orders and those that were unable to fill (UTF) for 

prescribed (Rx) fire projects.

From March 2020 to November 1, 2022, there were 

10,922 Rx fire project-specific orders placed in IROC. 

Of those, 5,173 were named requests for a specific 

person, and 4,553 were for Forest Service Rx fire 

projects specific to its Southern Region. When the 

IROC system is used, the UTF rate is approximately 9 

percent. Of note, local resources being used are often 

not on an order placed in IROC and therefore are not 

considered in this analysis. The results suggest that 

the IROC and dispatching system are working for Rx 

fire projects when they are used.

Additional reports were requested to review the 

single-day availability of fire engines, types 3–7; 

hotshot crews; and type 1 and type 2 firefighters. 

These resource types were chosen because they had 

the highest UTF rates on the previous reports.

The following illustrates the issue of resource 

availability: On November 10, 2022, there were 84 

Forest Service engines available in IROC. Most of 

these were in California (Pacific Southwest Region), 

due to the suppression season having extended longer 

into the fall. This included all availability types (local, 

geographic area, and national). The Forest Service 

has nearly 1,100 engines in its system. From the 

crew reports, 11 hotshot crews were available from 

the 91 in the Forest Service. The analysis did not 

try to assess the number of firefighters (FFT1 and 

FFT2) available in IROC, as individual firefighters 

are usually assigned to a resource type. For example, 

many members of a hotshot crew (FFT1 and FFT2) 
27

would show as firefighters, but they are not available 

as individuals while rostered with the crew. The team 

estimated that 343 individual firefighters, either type 

1 or type 2, were available across the country, of the 

thousands, if not tens of thousands, that could be 

available.

Forest Service fire program employees are generally 

considered as part of a rostered resource such as 

a hotshot or helitack crew or an engine, not as 

individual firefighters. Consequently, once those 

resources have completed their seasons, it is rare 

that the individual firefighters from that resource are 

made available in IROC, which is demonstrated by 

only 343 being available on November 10, 2022. 

Some of the employees on crews and engines are 

temporary and leave the agency after the established 

“season,” leaving the crew or engine unable to 

meet mobilization standards. For example, a type 

1 hotshot crew must have at least 18 people on the 

roster to mobilize. If 1 of 18 is missing, 17 are left 

unavailable in IROC. Some employees may not want 

to be available, or their supervisors may not want 

them available. The solution is a culture shift to allow 

individual employees to be available and informing 

the field to order individual resources. This solution 

may be difficult to implement in an interagency 

environment.

DISPATCH

Dispatch offices are currently understaffed 

and already carry a heavy workload due to fire 

suppression, which makes significantly increasing 

their workload unrealistic. The NICC estimates 

that nationwide a 30-percent vacancy rate exists in 

dispatch center staffing, which equates to over 350 

vacancies. One challenge to filling these vacancies is 

a lack of incentivization to apply due to ineligibility 

for firefighter supplemental pay for dispatch 

employees (2151 series). Dispatch coordinators 

expect that the vacancy rate will continue to rise 

under current conditions.

COMPETING PRIORITIES

Supervisors of Forest Service fire suppression 

resources generally do not make these resources 

available during periods of low wildfire occurrence 

that are generally considered their off-season. 

When employees and supervisors at multiple levels, 

including forest supervisors, were queried as to 

the likelihood of making resources available, the 

responses were generally negative. Reasons included 

both having local fuels and project work to complete 

as well as a desire to take care of employees by not 

further impacting work/life balance.

HOTSHOT CREW REVIEW

During the national interagency hotshot crew 

review, several questions were asked through the 

survey and in focus groups regarding performing 

fuels work away from the local unit during the 

off-season. One of the main themes that emerged 

from the survey and focus group conversations is 

the perception that crews see themselves caught in 

mounting competition between fire suppression and 

fuels program expectations, especially as Federal 

agencies seek to increase capacity for implementation 

of fuels reduction and prescribed burning projects 

(e.g., the Forest Service’s “Confronting the Wildfire 

Crisis” efforts). While the scope of the hotshot crew 

review does not include strategies to build additional 

capacity, it can be used to understand how that effort 

may overlap with the hotshot program.

In a 6-month season, an average hotshot may work 

as many hours as other agency employees work in 
28 

12 months. Hotshots expressed concern that they 

may not be a viable solution to increase capacity for 

prescribed burning because of end-of-season fatigue. 

They rely on their off-season, which overlaps with the 

prescribed burning season in many areas, to manage 

both physical and mental fatigue. Extending the 

season to require additional travel, long hours, and 

exposure to fire may be detrimental to their physical 

well-being, mental health, or both. Most survey 

respondents (over 700 from all levels of the agency) 

did not believe that hotshots should play a large role 

in fuels management at this time, with only 28 percent 

of survey respondents stating that hotshots were 

the best resource for completing fuels management 

projects, including prescribed burning, and just over 

50 percent indicating that local fuels crews were 

the best resource. Although the hotshot crew review 

focused specifically on hotshot crews, many other fire 

suppression resources have a comparable workload 

depending on the season and location. These 

resources face similar fatigue issues, which is likely 

to be reflected in resource availability.

The competition between fuels management and fire 

suppression faced by land management agencies was 

clearly articulated by one focus group member:

“I think the natural tendency will be to 

bolster the capacity for fire suppression 

only at the expense of other needs. Fuels 

mitigation is our best long-term strategy for 

the suppression challenges we face and our 

path for dealing with the issue strategically. 

If we drift more to suppression only, then 

we will continue to become more and more 

reactionary.”

The hotshot program has nearly 1,500 permanent 

positions when all are filled, so not having these 

crews available for fuels work can have a significant 

impact on the ability to increase the pace and scale of 

prescribed burning. If the hotshot program can adapt 

effectively to changing conditions and organization 

improvement efforts, agency fuels programs and the 

hotshot program will both benefit. Career ladders 

could be enhanced for fuels crews, hotshot crews, and 

supervisors. The competition for resources between 

suppression and prescribed burning will continue to 

be a challenge; however, flexibility and proactive 

communication among employees, supervisors, and 

program managers will improve resource availability 

for these programs.

OTHER BARRIERS

Pay: A significant challenge to employee 

participation in prescribed fire projects is the pay 

disparity between wildfire suppression and prescribed 

burning. For prescribed burning, employees do not 

receive hazard pay and exempt employees do not 

receive full overtime. Without those incentives, 

employees are less likely to take assignments, 

especially those that are away from their home units 

and families.

Hiring: Hiring is very challenging and time 

consuming and is also typically completed during 

the same timeframe as prescribed burning. A 

more streamlined hiring process could make more 

employees available.

Culture: Local line officers and fire managers feel 

immense pressure to get their local priority work 

done, and view employees on their organization 

charts as “theirs” to accomplish this work. Even 

when asked about hotshots, which are listed as 
29

national resources, similar responses were provided. 

In the off-season, they are employees of the local 

unit. If local supervisors do not make employees 

available to support national priorities, any solutions 

to incentivize employees to be available will be 

moot. The team suggests a message from the Chief 

or other senior executives that addresses the need to 

make resources available to Wildfire Crisis Strategy 

landscapes over local fuels and other projects.

The ingrained culture of the Forest Service 

surrounding local priorities and use of employees 

to accomplish those will be difficult to change. 

When forest supervisors and others were asked 

what it would take, the response was a reduction in 

assigned work at the local level and the need for a 

change in the system that would ensure reciprocity. 

Supervisors need to be able to trust that if employees 

are made available for landscape-scale prescribed 

fires outside of their local area, they will in turn have 

resources made available to them to accomplish local 

priority projects. This is not a feature of the wildfire 

suppression model and may be difficult to build into 

prescribed fire implementation.

OPPORTUNITIES

Partners and cooperators are an additional source of 

resources; however, current availability is limited 

by the lack of agreements under which these could 

be mobilized. The Forest Service is committed 

to coordinating with State and local agencies, 

communities, collaborative groups, nongovernmental 

organizations, private landowners, Tribes, partners, 

and others to build the necessary workforce capacity 

and coalition support for complementary, crossboundary treatments across landownerships. The 

agency’s Washington Office has recently worked 

to expand the national agreement with The Nature 

Conservancy (TNC), which will allow broader 

participation by this group in Forest Service projects. 

Other partnerships that can be grown or expanded, 

especially those with Tribes, should be pursued to 

increase resource availability.

Many local and State cooperators may be available to 

work with the Forest Service, both on agency lands 

and across boundaries; however, limited capacity to 

put necessary agreements in place at the local level 

has been identified as a challenge. Implementing 

broad national agreements could reduce or eliminate 

this challenge.

CONTRACTING

Additional access to nationally contracted resources 

is necessary to significantly increase the pace 

and scale of prescribed burning. Prior to 2023, 

40 type 2 initial attack crew, indefinite delivery, 

indefinite quantity (IDIQ) contracts could be used 

to accomplish prescribed burning; however, the 529 

crews under the national type 2 crew blanket purchase 

agreements (BPAs) could not be used. In addition, 

thousands of engines, bulldozers, water tenders, feller 

bunchers, and other equipment under virtual incident 

procurement (VIPR) incident blanket purchase 

agreements (IBPAs) were not available for this work. 

National caterers and showers under contracts for fire 

were also unavailable for prescribed fire projects. 

Through collaboration between procurement 

and property services (PPS) and FAM, potential 

solutions to access these resources were identified. 

These solutions may be temporary while different 

contracting instruments are being written. It is 

important to note that these solutions apply only 

to using the resources for prescribed burning 
30 

projects (table C-1). Resources can be used for burn 

preparation, ignition, holding, and contingency, but 

they cannot be used for mechanical fuels projects 

such as thinning.

Table C-1 outlines various incident procurement 

operations (IPO) contracts and agreements that have 

been made available to FAM in support of landscape 

investments and provides information regarding how 

processes will work in the field.

Table C-1.—Incident procurement process

Resources Ordering procedures Administration on site Notes

Type 2IA 

(initial attack) 

crews

Requisition package must 

be submitted through the 

appropriate contract service 

area (CSA). Request for quote 

(RFQ) must be issued by a 

contracting officer.

A contracting officer’s representative 

(COR) will complete necessary 

documentation as required by the 

contract. Payments will be completed 

through the Invoice Processing 

Platform (IPP).

These resources can be ordered through 

IROC using the process described for 

the type 2 crews below if there is a 

need for their skills, no agency crews 

are available, and date and time needed 

makes the requisition package route not 

feasible.

An IAS requisition and related submittals 

is required for each RFQ.

Type 2 crews Orders will be placed through 

IROC and filled by the NICC.

Government representatives will 

review and sign daily crew time 

reports (CTRs) developed by the 

contract crew. Times shall be posted 

to the daily use invoice (OF-286). 

At demobilization, the OF-286 and 

supporting documentation must be 

reviewed and signed by both the 

Government and contractor.

Final invoice packages must be audited 

and submitted to:

sm.fs.asc_eera@usda.gov.

An IAS requisition is not needed for each 

individual order.

Mobile showers Orders will be placed through 

IROC and filled by the NICC.

Government representative (FACL or 

LSC) will review and sign daily use 

invoices. The vendor is required to 

submit invoice packages to:

sm.fs.asc_eera@usda.gov.

An IAS requisition is not needed for each 

individual order.

Mobile food 

units

Orders will be placed through 

IROC and filled by the NICC.

Government representative (FDUL 

or LSC) will review and sign daily 

use invoices. The vendor is required 

to submit invoice packages to: sm.fs.

asc_eera@usda.gov.

An IAS requisition is not needed for each 

individual order.

VIPR IBPAs

Orders will be placed through 

IROC and filled by the host 

dispatch center.

Government representatives will 

review and sign daily shift tickets 

(OF-297s) developed by the 

contractor. Daily rates will be posted 

to the daily use invoice (OF-286). 

At demobilization, the OF-286 and 

supporting documentation must be 

reviewed and signed by both the 

Government and contractor.

Final invoice packages must be audited 

and submitted to:

sm.fs.asc_eera@usda.gov.

An IAS requisition is not needed for each 

individual order.

FACL = facilities unit leader; FDUL = food unit leader; IAS = Integrated Acquisition System; IBPA = incident blanket purchase agreement; 

IROC = Interagency Resource Ordering Capability; LSC = logistics section chief; NICC = National Interagency Coordination Center

VIPR = virtual incident procurement.
Cover photo: A prescribed burn on the Stanislaus-Tuolumne Experimental Forest 

in California. Experimental forests provide valuable research into how prescribed 

fire can restore healthy landscapes, especially when paired with timber harvests and 

other mechanical treatments. USDA Forest Service photo by Eric Knapp.

Back cover photo:Wildland firefighters responding to the Slink Fire in the HumboldtToiyabe National Forest in California. By applying the well-established processes of 

wildland fire suppression, the Forest Service can greatly increase the pace and scale 

of implementing prescribed fires. USDA Forest Service photo by Charity Parks.

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