SUMMARY

The Fire management policies of the Bureau of Land Management (BLM) and National Park Service (NPS), Department of Interior, support agency resource management goals. An overriding resource goal is the restoration or maintenance of natural ecosystems while providing for firefighter and public safety, protection of natural and cultural resources, and human developments from unwanted wildland fire.

This Joint Fire Management Plan (referred to as "the Plan" or "Joint Plan") for the El Malpais National Conservation Area and El Malpais National Monument has the following program direction.

• Guide a joint agency decision-making process in which safety, social, political, and resource values are evaluated and appropriate management response strategies are identified for wildland fires in all Fire Management Units while providing for a full suppression response strategy for all unwanted wildland fires
• Provide a framework for hazard fuels management strategies and for restoring wildland fire back into fire-dependent ecosystems
• Provide an interagency platform with which to cooperate more fully in planning and implementing a wildland fire program across agency boundaries

The program operations included in the Plan are presuppression, prevention, suppression, fuels management, and wildland fire use to achieve resource benefits (accomplish objectives). Applicable resource goals and objectives are lifted from approved agency resource and general management plans. The Plan is unique in that it is truly interagency in purpose, scope, objectives, and guidelines. It integrates those areas where policies and agency goals coincide while allowing agency-specific program elements to be integrated as well. For any policy differences that may emerge, there is provision in the Plan for a joint agency forum approach whereby appropriate and timely communications are fostered and consensus reached.

The Plan is organized to combine the latest scientific knowledge, including regional and local studies, with a hierarchy of policy direction, from Departmental and Agency to the Interagency Wildland and Prescribed Fire Management Policy (1995) to accomplish resource and fire management goals and objectives. It was written to be understood and implemented by BLM and NPS fire and resource management staffs and is primarily operational in nature.

The compliance requirements for the guidelines contained in the National Environmental Policy Act have been satisfied through the development of an Environmental Assessment, which is appended to this plan. These requirements ensure a prudent assessment and a balance between a federal action and any potential effects of that action, leading to consensus between fire managers, agency resource specialists, and the public regarding this interagency fire program. Any constraints or limitations imposed on the fire management program also are included.

Agencies within the Department of Interior (DOI) with vegetation capable of sustaining wildland fire are required to prepare fire management plans. The Bureau of Land Management (BLM) and the National Park Service (NPS), termed here "the agencies," have recognized and acted on this policy direction. The need for interagency coordination and collaboration has been reflected in the development of this Joint Fire Management Plan ("Joint Plan" or "the Plan").

The Plan provides a framework for the joint management of wildland and prescribed fire as a tool to safely accomplish protection and resource management objectives on BLM and NPS lands. The lands include those occupied by the El Malpais National Conservation Area (NCA) and El Malpais National Monument in western New Mexico (see the vicinity map in Fig. 1). The BLM manages 262,100 acres of federal land, and the lands encompass 114,272 acres for a total of 376,372 acres.

The Plan meets the National Environmental Policy Act (NEPA) and the requirements of the National Historic Preservation Act (NHPA), the Endangered Species Act, the Clean Air Act and Amendments, and the Clean Water Act.

The Federal Wildland Fire Management Policy (1995) provides the overall framework for agencies to build a program consistent with stated land and resource goals and objectives while ensuring firefighter and public safety. Specific agency authorities for implementing this Plan are discussed in Sec. 2.0.

The Plan conforms to the Federal Wildland Fire Management Policy and Program Review of 1995, which establishes direction for this program. Three critical departures from previous fire policy are that (1) all ignitions occurring in wildland areas are classified as wildland or prescribed fires, (2) all wildland fires are managed with the appropriate management response as outlined in this Plan and analysis of the specific situation, and (3) these fires can be managed entirely or in any part for resource benefits or receive suppression actions to minimize burned area because of high values to be protected, threats to life or property, or other social, political, and economic considerations that outweigh potential environmental benefits. These policy directives form the basis of operational protocols and strategies addressed throughout this Plan.

An Environmental Assessment (EA) serves as documentation that analyzes environmental impacts pursuant to proposed strategies detailed in this Plan, per NEPA (1969). As such, the EA is programmatic in that it satisfies the need for the development of NEPA documentation for individual projects under this Plan.

In addition to DOI Departmental Manual (910 DM), the agency policies and related management plans for which this Plan is tiered are described below.

Enabling legislation created the El Malpais NCA via P.L.100-225 on December 31, 1987. Congressional designation of the area as an "NCA" requires the BLM to manage the area’s resources with a "…higher order of protection than that followed on other multiple use lands…" (USDI BLM 1999). The Bureau prepared a General Management Plan (GMP) and EA between 1988 and 1991. The GMP/EA was appealed in favor of current preparation of a Draft El Malpais Plan and Environmental Impact Statement (EIS) (1999).

Fig. 1. Vicinity Map.

Further policy authority lies with the Federal Land Policy and Management Act (FLMPA), which provides overall policy direction for the BLM Albuquerque Field Office.

The NCA supports a varied landscape within its boundaries of 262,100 acres. The West Malpais Wilderness (approximately 39,800 acres), where volcanic landscapes with flows exceeding 800,000 years in age, is found in the NCA. Other features include cinder cones, forested mesas, canyons, buttes, and wide grassy valleys. For BLM fire management, the following legal and policy documents are listed.

• BLM Bureau Manual 9200
• BLM Standards for Fire Operations (1999)
• BLM Draft Prescribed Fire Management Handbook (H-9214-1)
• BLM Fire Management Planning Handbook (H-9211-1)
• P.L. 100-225 El Malpais National Conservation Area (1987)
• BLM Standards for Fire and Aviation Operations (1999)
• BLM Management of Designated Wilderness Areas (8560)

Authority for the NPS portion of the Plan is legislation creating El Malpais National Monument (P.L. 100-22), December 31, 1987, which states the following purpose.

NPS fire management policy (DO-18, RM-18) outlines the agency-specific program direction for all units of the National Park System. Additional NPS policy references include

• NPS Director’s Order 41 and
• Reference Manual 41, Preservation and Management of Wilderness.

Common to both agencies are the following.

• Federal Wildland Fire Policy (1995)
• Interagency Wildland and Prescribed Fire Management Policy Implementation Procedures Reference Guide (1998)
• DOI Departmental Manual (910 DM)

For the BLM, several land management plans tiered to agency policies, the El Malpais Plan and Environmental Impact Statement (Draft 1999) and portions of the Rio Puerco Resource Management Plan (1992), provide fire-related resource goals.

NPS planning documents affecting the Joint FMP are the Monument General Management Plan, Environmental Assessment, Wilderness Suitability Study (1990) and the Resource Management Plan, El Malpais NM (1997). Fire-related resource management goals (Sec/ 4.0) were referenced from these plans.

The area covered by this Plan lies on the southeastern edge of the Colorado Plateau in western New Mexico (see the vicinity map in Fig. 1) and is generally 70 air miles west of Albuquerque, New Mexico, and 15 air miles south of Grants, New Mexico.

The NCA and National Monument encompass approximately 376,372 acres (USDI, 1999; USDI, 1993). With a few exceptions, the NCA roughly surrounds Monument lands, with approximately 80 miles of common boundary. Private land tracts are checkerboarded and interspersed throughout the NCA and National Monument, comprising in-holdings and adjoining tracts. The eastern boundary of the NCA is mainly Acoma Reservation, the southern boundary is primarily private lands bounded on the west by Ramah Navajo Reservation, and the northern boundary is the Cibola National Forest and private lands (see the land ownership map in Fig. 2 ).

Typical of southwestern landscapes, the El Malpais ("the badlands") is a land of extremes, including mountains, foothills, mesas, canyons, rugged lava flows and cinder cones, and open ranges. Detailed descriptions of vegetation and other resources are in Secs. 5.0 and 6.0.

Climatic extremes are reflected by a complex variety of vegetation, and therefore animal distributions. Water availability varies from sparse to relatively abundant over the course of a year. Precipitation averages 12 inches annually, with August being the wettest with an average of 2.5 inches of rain and April–May the driest (0.35–0.42 inches per year) (USDI, 1999). Temperatures can be as variable; the average summer temperature is 70ºF., whereas the lowest daily average occurs in January at 32ºF. A temperature of 93ºF has been recorded on exposed rock (Lindsey 1951).

Fig. 2. Land Ownership, El Malpais Area.

[Source: El Malpais National Monument Fire Management Plan (Draft, 1997)]

Note: No warranty is made by the NPS nor the BLM as to the accuracy, reliability, or completeness of these data for individual use or aggregate use with other data, or for purposes not intended by the NPS and BLM. Spatial information may not meet National Map Accuracy Standards. This information may be updated without notice.

The NCA contains three administrative units and additional special designated tracts, which are listed in Table 1 by approximate acreage and ownership. The entire NCA is located within Cibola County, New Mexico. Note that outside-NCA acres also are included in Table 1 to illustrate the total fire management planning acres.

The Cebolla Wilderness is located along the east side of New Mexico Route 117, and the West Malpais Wilderness is situated north and east of County Road 42 and southwest of the National Monument. The total acreage between these two wilderness areas is 101,800 acres.

The Monument encompasses 114,272 acres of diverse volcanic-derived landscape, with 10 major volcanic vents (most in the form of cinder cones), 7 contiguous lava flows (see below), and some of the longest lava tube systems in the country. Several ice caves located within the Monument attracted early Native Americans, as well as troops from nearby Fort Wingate as early as the 1860s (Mangum 1990). These caves were formed from fractures and voids in the flows containing small perched water tables that have frozen and support unique flora and fauna.

Lava flows are classified primarily by age. The seven flows are listed below for reference.

• McCartys @ 32,000 acres; <3,200 years
• Bandera @ 21,000 acres; <11,000 years
• Hoya @ 26,000 acres; >30,000 years
• Twin Craters Complex @ 12,000 acres; <16,000 years
• El Caulderon @ 4,000 acres; >100,000 years
• Rendija @ 2,500 acres; >250,000 years
• Old Basalt Complex @ 5,000 acres; >500,000 years

Additional and more detailed information regarding these geologic features can be found in the El Malpais National Monument GMP and the Resource Management Plan (RMP).

The park and its lava flows are contained within a closed basin. All precipitation entering the area is either used by vegetation or sinks into the lava flow and enters the groundwater system. A large reservoir of subsurface water is believed to be present at depth beneath the lava. One of the only places where this unit of saturation may surface is on the northern edge of El Malpais National Monument at the Rio San Jose and the associated springs and seeps.

Cultural features include the remains of five tribes along with evidences of Spanish, Mexican, and modern exploration and exploitation.

The fire management goals below are taken from the applicable policies and resource objectives written in approved plans (see above) and fire management objectives or strategies that support the accomplishment of the stated goals.

1. All fire personnel will comply with the National Wildfire Coordinating Group (NWCG) and agency fitness requirements and will have personal protective equipment appropriate to the job or assignment.
2. Qualifications and staff experience necessary to accomplish fire management program objectives in a safe manner will be established and promoted.
3. All safety standards and guidelines identified within the Interagency Incident Business Management Handbook will be followed.
4. The Job Hazard Analysis (JHA) process will be used for all potentially hazardous fire management activities.

1. Create defensible space around identified federal improvements within all FMUs.
2. Apply mechanical fuel reduction and prescribed fire where applicable around vulnerable prehistoric and historic resources to reduce damage from wildland fire.

1. Integrate existing and revised agency prevention plans to the degree possible.
2. Establish a joint fire management website containing appropriate safety messages.

1. Manage a joint wildland suppression program that prevents unacceptable loss from fire annually.
2. `Suppress all wildland fires that do not meet resource objectives.

1. Review all existing agreements annually, updating or changing them as necessary to promote full cooperation in mutual fire management.
2. Coordinate with the US Forest Service (USFS), Acoma and Ramah Navajo Agencies and Tribes, local governments, and homeowners’ associations to maximize human and resource protection.

1. Ponderosa pine

Establish and maintain a vegetative structure and mosaic within the natural range of variability for southwestern ponderosa pine forest ecosystems as determined from fire ecology and historical research and also to prevent unwanted crownfire.

2. Pinyon-juniper woodland

Establish and maintain a vegetative structure and mosaic within the natural range of variability for southwestern pinyon-juniper woodlands as determined from fire ecology and historical research and also to prevent unwanted crownfire.

3. Grasslands

Restore fire as a keystone natural process that encourages native grassland ecosystems.

4. All types

Reduce established noxious and non-native plant cover.

5. BLM

Within wilderness, manage wildland fires under prescription to the greatest extent possible and use prescribed fires only in areas where reducing hazard fuels accumulations is a priority to protect human life, property, or high-value resources from catastrophic fires.

6. BLM

1. Develop a network of key local and area contacts and designate an interagency spokesperson to coordinate joint interagency fire information in a timely and accurate manner.
2. Develop a joint-agency fire management website to display relevant fire materials, the latest research, and program updates.

1. Include mitigation measures to protect air-quality values in all prescribed fire burnplans.
2. Consider air-quality impacts for all wildland and prescribed fires within go/no-go decisions.
3. Consider alternatives to fire use strategies in Wildland Fire Situation Analyses where air quality may be adversely impacted.

1. Monitor, evaluate, and report on the effects of fire (and non-fire) treatments on biotic systems, air and water quality, and cultural resources and quantify the overall effectiveness of these activities to improve the program.
2. Facilitate/continue a practical, management-oriented scientific investigation on the role of fire in Monument and NCA ecosystems.

This landscape supports a complex pattern of open areas, ponderosa pine forests, pinyon-juniper woodlands, and grasslands.

Based on existing resource documents from El Malpais National Monument, the general vegetation types or associations are the following..

• Douglas fir/Rocky Mountain juniper/ponderosa pine
• Ponderosa pine/native grassland
• Dwarf ponderosa pine/one-seed juniper/Pinyon pine/Apache plume
• Ponderosa pine savanna
• Blue gramma grassland (grass or grass/shrub, Great Basin grassland)
• Pinyon-juniper woodland

The BLM maintains a vegetative type classification based on "Biophysical Land Units" (BLUs), which are relatively homogeneous areas defined by lithology, surface drainage, soil type, vegetation cover, and land use (USDI BLM 1990). Based on the 12 BLUs, the agency recognizes 8 vegetative cover types.

• Sparse/barren
• Grass/shrubland
• Shrub/conifer woodland
• Mixed conifer
• Pinyon/juniper
• Deciduous thickets
• Ponderosa parkland
• Pygmy shrub/shrubland/lava complex

Most of the early fire-adapted vegetative communities have become altered from combinations of human use, early fire suppression, and climate change. Species compositions, such as the more open grasslands that existed before the 1900s, have changed to grass-shrub communities and pinyon-juniper woodland with understories of non-native exotics.

The pre-settlement fire regime (before 1880), where naturally recurring fire disturbances kept surface fuel loadings low and trees open with grassy understories, became severely disrupted with the onset of 20^th century fire suppression policies. These repeated, historic, low-intensity surface fires, which drove important ecological processes, including maintenance of native plant communities, in the southwest, were ended abruptly before the turn of the 20^th century (Bennett 1974, Dieterich 1983, Swetnam and Baisan 1994, Wolf and Nast 1998).

El Malpais National Monument (and assumed also within the majority of the NCA) contains numerous and well-preserved fire-scarred samples that were used to develop multi-centennial fire chronologies over a wide geographic area. Henri Grissino-Mayer, reporting in a dissertation titled Tree-Ring Reconstructions of Climate and Fire History at El Malpais National Monument, New Mexico, reports that wildfire was a common phenomenon in malpais forests since at least AD 1350. At the site level, fires (before 1880) occurred approximately once every 5 to 12 years. Minimal intervals ranged between 1 and 3 years, and maximum intervals ranged between 12 and 55 years. At the regional level, Grissino-Mayer reports that fires occurred somewhere within the study boundaries approximately.once every 2 years.

However, fire regimes are dynamic systems that respond to a variety of factors over time, such as fuel types and amounts and climatic and human factors. Again, Grissino-Mayer (1995) suggests that for maximizing the natural fire regime within the range of variability described, parameters of reconstructed regimes during the 1795–1880 period should be followed. This is largely because of similar climatic conditions with the 20^th century.

Grissino-Mayer (1995) reports that there was a major change in fire regimes in the malpais region ca. 1940, which is thought to reflect intensive and successful fire suppression efforts by land agencies. Before this time, fires in the often rugged and inaccessible sites received less attention, and therefore, suppression was less effective. Early grazing practices may have affected fire-carrying grasses, often resulting in minimal spread. However, woody fuels and litter began to accumulate.

Consequently, many of today’s fires behave much more erratically and intensely, particularly following above-average precipitation years when surface herbaceous and shrub densities increase. Often these fires destroy overstory, midstory, and understory; surface plant cover; stored seed and reproductive components; and soil microorganisms. Firefighters attempting to protect resource and human values by attempting aggressive suppression action are often placed at risk of injury and/or loss of life.

The two agency ownerships are generally related in terms of climate and fire seasonal patterns and fuels and fire behavior characteristics across the landscape. The following sections describe the current fire environment situation, which will serve as background information in the development of joint strategies found in Sec. 7.

Grissino-Mayer includes a comprehensive climatic trend analysis in his dissertation (1995). He notes the following periods in history (covering 2,129 years) that relate to the pattern of early fire across the malpais landscape.

• A 43-year period of below normal rainfall (AD 1566–1608); 12.86 inches per year average
• A short-term drought between AD 1727–1742
• A short-term drought between 1899–1904
• The "Great Drought" that occurred between 1271–1297
• The wettest short-term period, which occurred between AD 570–608, averaging 16.65 inches
• The highest average precipitation of any short term period, which was 17.66 inches between AD 1975–1992

Grissino-Mayer’s work skillfully relates these "cyclic" events to large-scale (or low-acreage) fire events in history, giving managers a framework from which to develop fire treatment and preparedness strategies.

Weather patterns in the NCA and Monument are typical of the semi-arid southwest. Variations in precipitation and temperature are wide, with precipitation varying from 9 to 18 inches per year (USDI NPS 1992). Winter precipitation, usually in the form of snow, normally occurs between November and March. However, much of this is dry and lacks appreciable moisture within the joint planning area. Spring and summer rains often contribute the majority of annual precipitation and thus fire danger. Spring rains (from March through May) significantly contribute to the severity of the summer fire season. The climatic patterns of El Ni» o and La Ni» a events have been found to be highly influential on southwestern weather; the former produces above-average precipitation and the latter produces more severe fire seasons. Lightning events may begin as early as April, with sporadic "dry" thunderstorms occurring into the "monsoon" season (July and August), when storms are often violent with heavy local precipitation.

A phenomenon thought to have an influence on the intensity and strength of summertime thunderstorms over this area are the lava flows themselves. The black, heat-absorbing capabilities of these landforms often result in severe "monsoonal" storm patterns over the malpais.

Temperatures vary according to elevation across the area, with daytime highs often exceeding 100º F during May and June. Fall months are typically warm during the day with cool to cold nighttime temperatures.

Winds are the highest during spring months, when winter frontal systems normally pass north of the area and produce only winds locally. Windbspeeds exceeding 30-40 mph are not uncommon during March, April, and May.

Both the NCA and Monument support a variety of fuel types. They include grass, sage, sage/grass, pi» yon/juniper, oakbrush/grass, ponderosa pine and ponderosa pine/mixed-conifer. The following table represents best available information on fuels complexes within the joint planning area:

Table 2 presents an overall view of fuels on an area-wide basis. Fuel classifications are further detailed within each FMU discussed in Sec. 7.2. An overall inventory of fuel loads by FBPS model has yet to be completed for the joint planning area. However, using the Photo Series (USDA 1990) for ponderosa pine gives estimates of total down and dead fuel loadings ranging from 1.5 to 26 tons/acre, depending on elevation, site, and other variables.

For the NCA, those areas that were once open savannah have experienced an increase in pinyon-juniper density. Many of these areas have passed the threshold where there is no longer enough fine fuel (herbaceous material) to move fire across the landscape. Grassland composition also has changed. Where blue gramma once composed 70% of herbaceous species, its composition, now is 90%. When densities of overstory pinyon-juniper are thinned, the additional sunlight created on the ground surface will contribute to stimulating herbaceous cover, which in turn will increase the ability of these savannahs to become fire-maintained in the long-term.

The best available fire management information for the purpose of fuels treatments addressed in the Joint Plan is found in the Monitoring Type Description Sheets (FMH-4) for El Malpais National Monument. The National Park Service Fire Effects Monitoring Program describes major cover types as "Monitoring Types" and includes resource goals and fire treatment objectives, target conditions (desired future condition), burn prescriptions, and monitoring type variables for each type. This information is detailed in Appendix G (Monitoring Types). The following monitoring types have been established for El Malpais National Monument and generally are apoplicable to NCA lands. Typical fire behavior characteristics are listed for comparison, represented by the three monitoring types:

For the National Monument, the critical fuels, and thus potential control problems, lie in the area of Lost Woman Crater, where large fires are of the highest probability to occur because of heavier surface loads (largely Ponderosa pine/mixed conifer). The largest fire in recorded park modern history was 10,000 acres. Much of this acreage burned through old decadent logging slash, creating high intensities with high resistance to control. Another area containing residual activity fuels along with closing canopy second-growth Ponderosa/ mixed conifer is Cerro Bandera. Private lands with increasing numbers of residences scattered nearby exacerbate the potential for high-intensity crownfires.

According to NPS FIREPRO III Base Analysis for El Malpais National Monument, the composite "statistical" fire season can be defined represented by wildfires and prescription natural fires (former terminology, now termed wildland fire use for resource benefit). From this table, an early, mid, and late season is defined with an embedded "core" season from which annual base funding is derived. Thus, the core season is defined as June 10 to August 18 (USDI NPS 2000).

Beginning generally in early May and depending on early spring precipitation, fire starts will build to a peak in late June. Activity generally remains moderate to high through July and into August, where monsoon establishment results in a sudden drop in fire size, although starts from lightning remain moderate. Early September marks a tapering off of activity.

For the NCA, wildland fires generally occur between May and August. Fires occurring outside of this period are generally human-caused. The fire activity period starts May 1and continues to the second 10-day period in August. The strength-of-force period starts May 1 and ends July 29 (USDI BLM 1998).

Resource management objectives drive strategies toward the restoration and maintenance of naturally functioning ecosystems within the joint planning area. This section describes operational guidelines whereby the BLM and NPS can integrate a total program involving application of strategies that accomplish mutually identified resource management and protection objectives.

All strategies and FMUs identified below are in compliance with the Wildland and Prescribed Fire Policy ("The Policy") Implementation and Reference Guide (1998).

This subsection discusses the program of action allowed under the policy described above, which promotes concurrent use of available management strategies so that a range of objectives can be accomplished. Specifically, this program of action does not favor one strategy over another without analysis of specific area and resource information, objectives, values to be protected, safety, risk, complexity, and other considerations.

A "wildland fire" is defined as any non-structure fire, other than prescribed fire, that occurs in the wildland. This term encompasses fires previously called both wildfires and prescribed natural fires. Both wildland fire suppression and wildland fire use will be discussed here.

Under the Policy, "wildland fire suppression" is defined as an appropriate management response (AMR) to wildland fire that results in curtailment of fire spread and eliminates all identified threats from the particular fire. All wildland fire suppression activities provide for firefighter and public safety as the highest consideration but minimize loss of resource values, economic expenditures, and/or the use of firefighting resources.

Therefore, mnagement responses can vary by fire given the direction above. Specific and direct action can be taken along the perimeter to check spread locally,or suppression intensity can be maximized across the entire perimeter.

"Wildland fire use" is defined as the management of naturally ignited wildland fires to accomplish specific,prestated resource management objectives in the predefined geographic areas outlined in this Joint Plan. "Wildland fire use" is in contrast with "fire use," which is a broader term encompassing more than just wildland fires and is defined as the combination of wildland fire use and prescribed fire application to meet resource objectives. For the purposes of this Plan, the terms "Wildland Fire for Resource Benefits (WFRB)" and "wildland fire allowed to accomplish resource objectives" are similar. The WFRB applies to NPS lands, whereas the latter term applies to BLM-managed lands.

WFRB will result in a wide range of fire-line intensities and severities. This diversity of fire behaviors will result in vegetative mosaics, including different composition and age classes across the landscape. Wildlife habitat also will benefit from this variation.

One desired result from a joint wildland fire use program is to allow natural-ignition fires (i.e., lightning) to accomplish objectives across agency boundaries (i.e., across the Fire Use FMU) within approved prescription parameters and constraints. For the purposes of this Plan, all wildland fires on either agency’s lands will be responded to and managed as if for one agency. However, the agency with the fire will take the lead in the AMR decision-making process (Sec. 9.0). Although the assessment process is similar for both agencies, there are separate documentation processes that must be understood by operational personnel.

For purposes of the Joint Plan and as defined by the Policy, prescribed fire is any fire ignited by management actions to meet specific objectives. A written, approved prescribed fire plan must exist before ignition. As this Joint Plan integrates the strategy of prescribed fire across all FMUs, it is imperative that both agencies follow the approved resource and fire management objectives stated in this Plan closely. This collaboration is particularly important in situations where prescribed fire is planned and implemented across agency boundaries.

For the foreseeable future, the prescribed fire program under the Joint Plan will be aimed at restoring fire as a natural ecological process; however, for some areas, the immediate emphasis is reducing hazard fuels concentrations (see below). Many areas subject to first-entry treatment may require subsequent treatment(s) to achieve the hazard fuels reduction objectives,as opposed to attempting to meet all objectives on the first treatment and risk costly escape and/or unacceptable resource damage.

Hazard fuels management activities reduce the fire hazard of natural fuels when weather and/or risk assessments demonstrate a reasonable chance for future wildland fire damage. The beneficial outcome is that firefighter and public safety is enhanced, real property and natural and cultural resources are protected, potential suppression costs are significantly reduced, and the restoration of fire back into fire-adapted landscapes is initiated through hazard fuels reduction activities.

Hazard fuel reduction objectives can be met through a well-planned series of projects in which prescribed fire can be used in combination with non-fire treatment strategies. Non-fire treatment may include, but not be limited to, pruning, thinning, lop/scatter, piling and burning, chipping/mulching, and fuel-wood removal by the public (BLM lands only). A primary objective of this technique is prescribed fire unit preparation, such as establishing control lines, clearing around values at risk, or treating selected areas that may threaten control lines or result in unwanted crownfire. A hazard fuels map should be prepared that will show the fuels concentrations to be treated.

It is important to recognize how important past treatment patterns will become over time, e.g., ignition and burn patterns should vary temporally and spatially across the landscape. With a disciplined joint-agency-designed monitoring program and repeated entries using a predetermined fuels treatment schedule, management can begin to adjust structure and successional dynamics to a natural range of variability. Each prescribed fire project shall be resource based, moving toward the desired future condition.

A "Fire Management Unit" (FMU) is any land management area definable by objectives, land features, access, values to be protected, political boundaries, fuel types, major fire regimes, or designated special management areas designated by agency policy or congressional action [i.e., wilderness, wilderness study area (WSA), etc]. Each FMU will have fire management strategies (with any constraints) assigned with which to accomplish stated objectives.

The three joint FMUs described below are defined primarily by a major fire management strategy corresponding to values to be protected and fire regimes. It is anticipated that at some point in the future, only two FMUs will be required to accomplish long-term fire- related resource management goals. However, FMU-3 (Fuels Management) delineates a conditional area in which fire and non-fire strategies may be used to reduce hazard fuels accumulations and thus begin to return the natural role of fire. It is conditional in that when hazard fuels management and other objectives are met, it will become part of FMU-2.

It should be stated and re-emphasized that prescribed fire is an acceptable management tool for all FMUs.

This unit is one where all fires will be suppressed using a more agressive management response and where fire presence will be minimized. Features that define this unit are largely human developments, cultural resources, scenic values, and other structures that require protection from wildland fire of any ignition source. This unit identifies a complex array of checkerboard ownerships that, if written out, often becomes confusing to operational personnel. The following areas are within FMU-1 (illustrated in Appendix F).

• Cerritos de Jaspe (approximately 9,200 acres)
• Areas of scenic value and development, including a boundary with Acoma Pueblo lands (Bureau of Indian Affairs) along Route 117 (including the "Spur") (approximately 4,500 acres)
• NCA lands on the northeast (the "Neck" unit) (approximately 6,100 acres)
• Areas of the Cebolla Wilderness (along State Route 117) where facilities, historic structures, or adjacent to small private land parcels (approximately 500 acres) (USDI BLM 1999)

• Cerro Bandera area (all private properties, NPS facilities including the Visitor Contact Station, the Fire Cache, and picnic and maintenance areas); southwest from Cerro Bandera along County Road 42 to the east slope of Cerro Rendija (approx. 6,000 acres)

The topography over most of the FMU is flat, with the exception of several steep cinder cones on the western portions. Elevations can vary from under 7,000 ft to over 8,300 ft, with the summit of Cerro Bandera the highest point on the Monument.

Fuels are among the most hazardous within the Joint Plan area, with FBPS Model 2 (timber/grass) as dominant. Other models represented are FBPS 1, 6, 8, and 9.

Access is difficult either by vehicle or foot travel, and initial attack times may vary widely depending on the degree of isolation of initiating fires.

FMU lands will be protected with an appropriate suppression response in and around identified structures, developments, and other values at risk to these approximate minimums.

• FBPS Models 1,2 (grass is primary carrier): ½ - 1 mile around value
• FBPS Models 8,9 (timber litter is carrier): ¼ - ½ mile around value
• FBPS Model 6 (shrubs): ½ mile around value

These inexact "buffers" around values to be protected are intended to be both flexible and based on the Indicdent Commander’s (IC) judgement given conditions on the ground. Other factors assessed during initial attack also may modify the protection distances around values.

• Suppress all wildland fires using an aggressive suppression strategy that minimizes loss of structures, property, cultural resources, and other identified values at risk while ensuring firefighter and public safety.
• Reduce wildland fire hazard around developed areas, along interface boundary areas, and around identified cultural sites and features.

• Both agencies shall establish fire protection agreements and partnerships that are developed, approved, and promoted to clarify responsibilities and to provide for pre-fire hazard and risk mitigation and suppression preparedness.
• Apply mechanical hazard reduction to create defensible space and reduce potential intensities.
• Use prescribed fire to consume accumulated debris from mechanical fuels reduction treatments where applicable.

• All fire-management-related activities will be based on the safety of personnel and the public as the highest priority.
• Apply best available management measures (see theAir Quality Section) when mitigating for smoke impacts from prescribed fire.
• Bulldozers are allowed with a resource advisor on-site when life or property are at risk.
• Protection mitigation measures for all known cultural resources, ice caves, and human-constructed features (government or privately owned) must be in place before any fuels reduction project or suppression action.
• Consider assignment of a cultural resource specialist to project(s) where on-site mitigation may be required.
• Low-level aircraft use, including retardants, will be employed only for protection of life and property.
• All fire suppression personnel operating within Unit will be briefed regarding known hazards, LCES (Lookouts, Communications, Escape routes, Safety zones), current and predicted weather, and current fire behavior by the IC or designee.
• Minimum Impact Suppression Tactics (MIST) will be employed within 4 miles of SR 117 to ensure protection of cultural sites and features. A map of "special areas of concern" will be on file in the respective agency resource offices.

Management intent regarding all wildland fires is clear. All wildland fires, regardless of ignition source, will receive prompt suppression action commensurate with human safety in all instances.

Management of naturally occurring fire within this Unit shall be such that fire presence is maximized across the landscape, and fire is restored to the ecosystem to the extent possible. The Unit was designated from an interagency, interdisciplinary analysis that focused on current situational factors such as minimal values at risk, optimum fuel loads on the average across a majority of the area, and vegetation that was shaped historically by periodic natural fire disturbance events. The following landscapes comprise the Unit and are shown on the Joint FMU Map (Appendix F).

• West Malpais Wilderness (approx. 39,800 acres)

Monument

• The Hoya Flow area, surrounded on west, south, and east by West Malpais Wilderness (approximately 17,000 acres)
• McCarty’s Flow (southern 2/3 of Flow area, approximately 49,000 acres)
• Lost Woman Crater (forms a U-shaped land area from Zuni-Acoma Trailhead on highway 53, southwest to the Bandera Flow north of Cerro Encierro, and northwest to the area around Lost Woman Crater)
• West Malpais (a 2,500-acre tract trending north-south forming a narrow strip; located in the southwestern quarter of McCarty's Flow western edge)

• Employ, under agency guidelines, an AMR strategy in FMU 2 that considers the management of naturally ignited wildland fire for resource benefit in areas of the Unit where current fire environment conditions warrant.
• Use approved fuels management techniques that include prescribed fire treatments to reduce localized fuels concentrations back to a more natural range of variability only where necessary to meet fuels reduction objectives.
• Ultimately manage the FMU to allow for maximized wildland fire presence to the fullest extent possible while protecting values at risk (ie, wilderness).
• An appropriate suppression response will be used in FMU-2 for all wildland fires that do not meet resource objectives or prescriptive criteria.

Until programmatic minimum requirement guidelines can be approved for wilderness areas and WSAs within the NCA, the BLM Interim Policy and Guidelines for Lands under Wilderness Review will be followed for all project work in these designated areas.

• For El Malpais National Monument lands managed as "de facto" wilderness in FMU-2, the constraints and protocols are similar to those listed for the BLM below.

• For a wildland fire within the wilderness (FMU-2) that is under assessment for an AMR strategy, the following protocols will be followed.

1. The agency administrator will ensure the involvement of a [wilderness] resource advisor (RA) under a Delegation of Authority early on as to potential for use of motorized resources;
2. If determined by the Fire Use Manager (FUMA) or IC, in consultation with the agency resource specialist/advisor, that motorized resources are needed for a suppression response (i.e., a "fire emergency" where human life, property, or high-value resources may be at risk on adjacent lands or where there may be unacceptable changes to wilderness resource values), a proposed route and resources to be used will be developed for agency administrator approval.
3. For any authorized motorized use in FMU-2, the FUMA/IC is responsible for notifying all responding units and briefing resources assigned on minimum impact suppression techniques.

In addition, the following apply.

• For large wildland fires requiring an incident management team with multiple resources, RAs will be assigned to theIC to ensure that wilderness protection objectives are met.
• Under extreme fire danger conditions (generally PL-4 and 5), advance approval may be granted by the Fire Program Manager (FPM) (following consultation with the Agency Administrator and authorization) to allow motorized access for suppression purposes. Limitations will be set on type, number, and extent of use. Unlimited motorized access will not be permitted.
• Under no conditions should motorized access be permitted following a successful initial attack or needed monitoring, etc. If such a contained fire should flare up later, wilderness access shall be considered in the Wildland Fire Situation Analysis (WFSA) for which a new response strategy is developed with RA input.
• The RA will determine if any post-fire monitoring or rehabilitation is required.

Prescribed fire burn plans will be forwarded to the designated BLM wilderness coordinator or NPS Chief of Resource Management for review. The review process needs to be documented and appended to the project plan before work begins.

• The appropriate level of management will be assigned to the fire by the FPM for both agencies party to this Plan using agency complexity rating guidelines for extended attack incidents.
• All fire management activities will use MIST at all levels of the organization, during crew briefings, and during preseason orientation.
• Smoke management reporting requirements for the State of New Mexico (see the Air Quality/Smoke Management Section) will be followed for prescribed fire projects, and appropriate notifications will be made during suppression operations.

*All constraints listed for FMU-1 also apply to FMU-2.

This FMU is established under joint agency management as a Conditional Wildland Fire Use Unit. This unit is to remain a separate fire management unit that is conditional on fuels being modified (reduced) to a more natural range of variability through approved treatment strategies. In the interim period, management strategies can range from

• suppress unwanted wildland fires to

• manage wildland fires for resource benefit to

• use prescribed fire as a tool to achieve fuels management objectives to
• use non-fire treatments to achieve fuels management objectives

See the detailed discussion of strategies below.

Through fire history, literature review, on-site fuels inventory, and other fuels-related studies, it has been determined that lands under this FMU contain areas of fuels concentrations that could, under high fire danger conditions or above, potentially threaten resource and other values through unwanted crownfires. The unit contains localized but significant areas of unnaturally high stand densities, down and dead surface fuels, and ladder fuels that contribute to the overall fuels complex (see below). Consequently, this FMU is considered a high-priority fuels management area. Emphasis is placed on the application of a combination of management strategies (listed above) to accomplish stated fuels management and resource protection objectives.

After the regime of approved fuels treatments (i.e., first-entry treatments as a minimum) identified in a multi-year schedule is complete and where objectives have been met, areas within FMU-3 will be assessed for inclusion into FMU-2. This assessment transition will be documented in future Joint Fire Management Plan revisions.

Lands in this FMU are shown in Appendix F and described below.

• All lands not classified under FMU-1 or FMU-2.

The area's rugged topography supports a complex pattern of open areas, ponderosa forests, pinyon-juniper woodlands, and grasslands. However, many vegetative communities are becoming stagnant or deteriorated (USDI BLM 1999). Open grasslands have changed to shrublands or grass-shrub communities and pinyon-juniper woodlands because of the absence of periodic fire and human use. Increased fuel loads and loss of biodiversity is occurring, setting up conditions for high-intensity stand-replacing crownfires in areas of the unit.

• El Caulderon Lava Fields (along State Route 53, north and west, then south to a point just north of Cerro Encierro) (approximately 4,000 acres)
• Highway 117 south of La Ventana Natural Arch south approximately 2 miles to southeast corner of Monument also far northeast, and north (approximately 2,700 acres)
• All other NPS lands (El MalpaisNational Monument) not included in FMUs 1 or 2.

This FMU encompasses less than 1/3 of the Monument lands. The topography varies from flat, rugged, and forested lava flows, to several cinder cones, to canyons and arroyos, to wide grassy valleys and high mesas.

The 18,300 acre BLM Chain of Craters WSA is included because of its proximity to the Ramah Navajo Indian lands and the current difficulty of defending these lands from wildland fire until fuels can be treated adequately and defensible boundaries can be established.

The Lost Woman Crater Crater area contains high concentrations of lava tubes, ice caves, volcanic vents, and associated features requiring active fuels management to mitigate undesirable fire effects on these features. There remains a 3,000-acre tract in the northern portion of this area, and high concentrations of slash are scattered across the area. The area is capable of supporting large fires exhibiting high resistance to control as the four largest wildfires on the Monument occurred in this area during the late 1980s. Access remains difficult, and fuels mitigation efforts will be costly.

• In identified areas where fuels accumulations exceed the historical range of variability, reduce crownfire/high-severity wildland fire potential and create adequate defensible space where applicable.

• Employ a joint AMR strategy in FMU-3 that considers the full range of suppression options available, commensurate with maximizing public and firefighter safety and protection of resource values and optimizing suppression costs.
• Use the full range of fuels management methodology, including prescribed fire and non-fire treatments, to reduce fuels concentrations to a more natural range of variability.
• Ultimately manage the area (as FMU-2) to allow for wildland fire to play a natural disturbance role to the fullest extent possible while protecting values at risk.

The goal and strategies listed above are similar for those listed for FMU-2 with the exception that the AMR suppression strategies in FMU-3 may consider a fuller range of treatment options, given safety factors and conditions in the fire environment.

Fuels management is a key strategy within FMU-3. Each agency will prepare project plans, or in the case of joint fuels management projects, a joint plan, according to guidelines and directives set forth for preparing such plans. Of particular concern are the level and scope of mechanical fuel reduction to accomplish on-site project objectives. Plans must receive appropriate review and contain mitigating measures that protect natural, cultural, and social-political values and concerns.

The application of herbicides for the management of non-native vegetation on BLM lands must be planned and implemented according to established policy and application protocols. Close coordination with cooperators where applicable is also necessary.

See "Constraints for FMU-2."

The joint planning area consists of a vast area of forested lava flows with interconnected historical fire regimes. The vegetative type that supports the shortest return interval with a historically low-intensity fire behavior regime is the ponderosa pine type. With an understory of generally herbaceous ground cover, the ponderosa pine type supports surface fires ranging from creeping to active running surface fires with winds. Considerable torching and short-range spotting can occur from fires encountering heavy down and dead fuels concentrations. During hot and dry periods, this torching and spotting fire behavior can become more common. However, following the onset of monsoons, herbaceous cover plants (warm season grasses) rapidly green up and provide a degree of resistance to fire spread. Crownfire behavior is relatively uncommon except under the most extreme conditions of wind events, critical surface intensities, and adequate crown closure (USDI, NPS 1992).

For the other major cover types, particularly where pinyon-juniper component is predominant, fire behavior during season may vary from low-intensity underburning and creeping to extreme behavior with frequent torching and intermittent to sustained running crownfire under high-wind conditions.

Fire effects from the low- to moderate-intensity wildland fire are generally positive. Nitrogen recycling resulting from volatilization of nitrogen-inhibiting terpenes contained in needle litter can occur with burns under ponderosa canopy at moderate or low intensities. Other critical chemicals (phosphorus, ammonium, potassium, etc.) become available for cycling back into nutrient-poor soils under low-intensity burns. Biomass is reduced, surface vegetative matter, and per cent of canopy cover all can be reduced to allow sunlight on soil surfaces. Following fire, vegetation that requires increased sunlight flourishes. Fire behavior that reflects increased but intermittent high intensities is necessary in localized areas to reduce pinyon-juniper encroachment, for example.

The reintroduction of fire into the present-day forest has the potential to change the frequency and distribution of key wildlife habitat components such as snags (for cavity nesting birds), downed logs (for small mammals), and old trees (roost sites) (Randall-Parker and Miller 1999).

For those fire-evolved ecosystems that historically supported high-frequency, low-intensity fire regimes, periodic fire between 7–15 years (average) is required to maintain sustainability, species diversity, adequate nutrient-cycling pathways, and eventual resistance to sustained and destructive crownfire.

The issue of alien (non-native) species poses a significant threat to wilderness and other protected lands by directly and indirectly impacting native species. Of more concern is the effect of alien plants, which can compromise the genetic integrity of native species. These patterns across the landscape have been brought about by early fire suppression and livestock management practices. Generally, the exotic (alien) plants found in the planning area are opportunistic; that is, these plants can easily occupy a localized site that has been disturbed. These areas, which were occupied by native cover species and maintained by periodic surface fire, are now supporting exotic plants that have slowly displaced many native species. In some cases, the invading exotic plants cannot carry fire adequately; in other areas, fire can be used to encourage native plant re-establishment. This subject needs further management-oriented research.

Restoring fire (whether through prescribed fire treatments or fire use for resource benefits) in once high-frequency, low-intensity forest ecosystems (FMUs 1 and 2) that now contain large fuels accumulations requires careful planning and implementation to minimize risk to property, the public, and resource values.

The Albuquerque Field Office and El Malpais National Monument are included in the Albuquerque (ABZ). The ABZ is responsible for providing initial attack dispatching and where the BLM cooperates with the Forest Service and the Bureau of Indian Affairs in providing dispatchers to ABZ.

The BLM fire organization that services the NCA under this Joint Plan includse the Field Office Fire Program Manager (FPM) located in the Albuquerque Office. This position reports to the Renewable Resources Assistant Field Manager. The following positions report to the FPM.

• Dispatcher (PFT)–ABZ
• Fuels Management Specialist–Albuquerque Field Office

• Engine Foreman (career seasonal, 9 months)–Grants
• Engine Foreman (career seasonal, 9 months)–Albuquerque Field Office
• (2) Assistant Engine Foreman (career seasonal, less than 6 months)
• (4) Firefighter (seasonal)

In addition to the fire staff listed above, the Albuquerque Field Office has approximately 15 red-carded, non-fire staff. Approximately half of the 15 are fireline-certified year to year and can actively participate in wildland fire or prescribed fire operations. Two individuals are members of the New Mexico Type II Interagency Incident Management Team.

The FPM retains overall responsibility for all fire management program activities for BLM under this Joint Plan.

During a fire season, one engine normally will be assigned to Grants (with a fire cache that supports a Type 6 engine) and one engine will be assigned to the Field Office in Albuquerque.

The El Malpais National Monument fire organization is structured such that an area FPM duty-stationed at Bandelier National Monument (Los Alamos, New Mexico) is responsible for fire program oversight and management consultation (20% FTE committed to El Malpais National Monument). Although the position reports to the Superintendent of Bandelier National Monument, there is the added requirement (under an interpark agreement) that the FPM will coordinate with the Chief of Resource Management of El Malpais National Monument with final signature authority provided by the Superintendent of El Malpais National Monument for El Malpais fire management matters.

The Fire Management Program Assistant (duty-stationed Bandelier National Monument) also provides technical assistance under the agreement mentioned above.

Two positions report to the Forestry Technician (Fire Operations Specialist) at El Malpais National Monument.

• Engine Foreman (seasonal)
• (2) Firefighter (seasonal)

Refer to the Organizational chart for the BLM and the NPS in Appendix C.

The roles and responsibilities common to both agencies under this Plan are identified in Sec. 9.3.

The key contacts are as follows.

• FPM–Albuquerque Field Office
• FPM–Bandelier National Monument
• Chief, Resources Management, El Malpais National Monument
• Fire Operations Specialist–El Malpais National Monument

The BLM requires an additional repeater to be installed in the El Malpais area or that the current system be re-configured to provide more effective radio communication coverage over the area.

This blanket agreement between the State of New Mexico and cooperating federal fire agencies (Bureau of Indian Affairs, Bureau of Land Management, US Fish and Wildlife Service, National Park Service, and the US Forest Service) provides for mutual wildland fire suppression assistance.

Under the Joint Powers Agreement between all wildland agencies, the Operating Plan provides specific direction for implementing the Joint Powers Agreement. This document identifies areas of initial attack responsibility as well as reporting requirements, notification procedures, and reimbursement guidelines for any wildland fires that escape initial attack on State and private lands. Also under the Operating plan is language providing for the specifics of Joint protection responsibility shared between BLM and NPS for Monument and NCA lands.

This MOU establishes a board consisting of representatives of all agencies within the Albuquerque Unit. The Board’s mission is to actively manage operations of the Albuquerque Unit Coordination Center (ABZ), which includes the safe, timely, and cost-effective coordination of interagency suppression resources requested by participating agencies and the Southwest Coordination Center (SWCC).

This MOU establishes responsibility for the Albuquerque Zone (ABZ) to provide initial attack dispatch and resource tracking services to the Albuquerque Field Office. Its location is the Fire Office at the Albuquerque field Office.

This section addresses the two primary components of wildland fire management, suppression and fire use, with program elements outlined under each component.

Wildland fire suppression is defined as "…an appropriate management response to wildland fire that results in curtailment of fire spread and eliminates all identified threats from the particular fire." (USDA, USDI 1998). The following subsections discuss all aspects of a joint agency suppression program, ranging from preparedness actions through rehabilitation after wildland fires.

All of the wildland fuels complexes represented on Monument and NCA lands display a range of fire behaviors, which are described below.

• Creeping ground fires in heavy needle/leaf litter and underlying duff under higher surface fuel, duff, and soil moistures (normally during the off-season periods, late winter-early spring and late fall-winter)

• Surface fire spread with an active flame front with lower fuel moistures (early fire season, following several drying days, and early fall with little or no wind)
• Active surface fire spread with torching, short-range spotting (usually with higher frontal winds, lower humidities in mid-April, May, June, early July)
• Running surface fire with torching, intermittent or sustained crownfire, short- and long-range spotting (under high winds, low humidities, low foliar and surface fuel moistures, and following drought periods where indices are over the 90^th percentile)

Wildland fires that occur under the conditions described in the latter two ranges may receive an aggressive supppression response, depending on location and fuels ahead of potential spread. Conversely, wildland fires expressing behavior characteristics described under the first two categories are good candidates to be assessed for management as a WFRB (NPS) or to be allowed to burn to meet resource objectives (BLM).

"Preparedness" refers to activities that lead to a safe, efficient, and cost-effective fire management program in support of land and resource management objectives through appropriate planning and coordination. This section establishes a Joint Plan base program necessary to meet wildland fire suppression, fire use, and prescribed fire workloads. The fire organizations are described.

A Joint Fire Management Plan Implementation Group will be formed at Plan approval. The purpose of the Group is to ensure operational consistency and close coordination of each agency as directed in the Plan. The Group shall consist of the FPM Bandelier–El Malpais National Monuments, theFPM Albuquerque Field Office, the Fire Operations Specialist (ELMA), and the Chief of Resources Management (ELMA). The agency administrators or designees are considered ad hoc members who should be invited to regularly scheduled meetings. Meetings will be conducted a minimum of twice per year (pre-season and post-season) to establish joint projects and procedures for wildland and prescribed fire, readiness, funding issues, problem areas, and other items in preparation for the season. The Group also will evaluate how implementation of the Joint Fire Management Plan is progressing.

The Group will use the following as a "tickler list" to develop action items for each planning level (see the Joint Step-up/Staffing Plan in Appendix H).

• Prepare a mutual severity needs analysis for the coming fire season when conditions exceed those of a normal fire year (consider pre-positioning of suppression resources; augmentation and support outside local organization needed).

• Review new policies, roles, and responsibilities.
• Review and update as necessary all delegations of authority and an Agency Administrator Briefing Package.
• Identify any mutual safety issues and mitigating actions required.
• Clarify mutual criteria for team transitions and managing mutual multiple fire activity.
• Develop mutual and integrated action items to implement staffing levels (refer to the Step-up Plan in Appendix H).
• Identify strategies to communicate fire program principles to the cooperators and publics (Red Flag alerts, etc.).
• Agree on mutual standards to evaluate the performance of the organizations in implementing the Joint Plan.
• Address other issues requiring coordination.

Any proposed addenda, omissions, or clarifications in policy or procedures that require agency administrator approval will be developed by the Group. After appropriate review and approval are obtained, the new addition(s) will be appended to the Joint Plan.

The prevention objectives for the planning area, which that will constitute the foundation for a Joint Prevention Plan, are the following.

• Reduce the number of human-caused wildland fires.
• Integrate fire prevention messages into a variety of programs, ranger activities, and local media, to be targeted for the using public, schools, recreationists, landowners, and motorists.
• Coordinate fire prevention efforts with all cooperators and affected landowners.
• Implement the hazard reduction fuels management program.
• Prepare and deploy prevention-related signs and messages.

The Joint Prevention Plan will incorporate the Prevention Plan for El Malpais National Monument and BLM fire prevention guidelines and policies and will be included as Appendix K.

The purpose of wildland and prescribed fire training is to promote safe and effective individual performance in accomplishing fire management goals and objectives.

All wildland fire personnel for the BLM and NPS will be qualified and certified for the position(s) assigned to them according to the Wildland and Prescribed Fire Qualifications System Guide (PMS 310-1). For the BLM, the BLM Standards for Fire & Aviation (release date 04/00), Chapter 2, "Requirements for Fire Management Positions" detail additional requirements for fire positions. For the NPS, the Wildland Fire Management Reference Manual RM-18 (4/99), and Director’s Order #18: Wildland Fire Management (5/99) outline agency-specific guidelines.

The qualification records of all employees involved in wildland fires certified at or above Single Resource Boss/Unit Leader will be entered into and maintained annually on the DOI Incident Qualification System.

The agencies will cooperate with the Unit Training Board as needed in developing an annual training schedule. The training needs assessment updates are the responsibility of the Joint FMP Implementation Group. Refresher courses (firefighter safety, helicopter operations, etc.) and other required annual training will be coordinated by qualified staff as assigned by the Implementation Group.

Readiness actions (in addition to those listed in Sec. 9.3 above) are described below.

• The Oso Ridge Lookout cost-share agreement will be updated and in place (El Malpais National Monument)
• The agency fire caches and equipment shall be inspected and documented for completeness and serviceability as directed by the respective FPMs or designees on a pre-season and during-season non-scheduled basis.
• Timely follow-up actions to preparedness inspections will be ensured.
• El Malpais National Monument will maintain supplies, materials, and equipment at the fire cache on Hwy. 53 to meet normal fire-year requirements and a 20-person hand crew.
• The BLM will maintain a fire cache at Grants to support a Type-6 engine.

The following preparedness activity schedule will be followed annually.

The Step-Up Plan (NPS) or Fire Danger Operating Plan (BLM) describes a series of escalating management responses that are intended to supplement normal wildland fire capabilities for short periods (i.e., normally one burn period). This policy-compliant plan is in table format and is in Appendix H.

The pre-attack plan includes a compilation of essential fire management information that fire staff can use for quick reference as incidents occur. The plan contents includes the following information.

• Sensitive resource information references
• Evaluations of structures, improvements, and other values at risk
• Criteria for closures
• Evacuation plan

For the NPS, a Pre-Attack Planning Checklist is included in the Wildland Fire Management Reference Manual (RM-18). As items on this checklist are completed or updated, they will be appended to this Plan. The Preseason Risk Analysis (BLM "Seasonal Risk Analysis") is a procedure for assessing present and future fire danger for the planning area using the criteria in Table 3.

Applicable factors from this table should be analyzed jointly by the respective agency FPMs as early as conditions warrant before fire season. Severity funding requests, if indicated from the risk analysis, also should be jointly prepared and finalized in coordination with cooperators statewide through Unit Boards. Submissions will move through agency fire channels to the NIFC. Refer to BLM Standards for Fire & Aviation Operations, Chapter 7, and/or NPS RM-18, Part 18.

Responsible land stewardship ethics apply especially to the area of fire management. MIST guidelines were developed to ensure that the impacts of fire management actions do not exceed those of the fires. These guidelines will be communicated via instructions that are clear, measurable, and understandable and will be transmitted both verbally and in writing. They will relate to Sec. 16, Protection of Sensitive Resources. The guidelines will apply from the Agency Administrator down through Incident Management Teams to firefighters on scene.

All suppression tactics and support actions will be selected commensurate with potential fire behavior and to minimize impacts to values to be protected. These decisions must be informed and based on interdisciplinary inputs to the extent possible with respect to conditions on the ground. The MIST guidelines included in the Joint Plan are in Appendix E.

The impacts of suppression and other management actions often require some form and level of rehabilitation. Short- and long-term impact mitigation measures are outlined in Reference Manual RM-18 (NPS), the DOI Burned Area Emergency Rehabilitation (BAER) Handbook, and Director’s Order #18 (NPS).

The joint guidelines to be followed include the following.

• Minimum requirements shall guide actions to mitigate actual or potential damage from wildland fire.
• Mitigation of suppression damage will be specified in incident action plans.
• BAER plans will be prepared as necessary to specify long-term mitigating actions, submitted to the affected agency central office (NPS: Denver Support Office, Intermountain Region; BLM: State Office) within 5 calendar days following control of a wildland fire.
• NPS: Burn areas generally will not be seeded or revegetated, depending on specific local impacts.
• BLM: Burn area seeding will be considered, depending on specific local impacts.
• Water bars shall be hand-placed; no mechanical equipment will be used.

All fires not ignited by managers for specific purposes are considered wildland fires. Thus, all wildland fires will have the same classification but separate from prescribed fire covered in Sec. 10.

Under this Plan, WFRB is applicable for NPS portions of FMU-2 for fires of natural origin. Wildland fires initiated from natural causes occurring in FMU-3 will receive a suppression response under conditions described in this section. However, a range of intensity of suppression actions within the Unit is available to management. FMU-1 is a total suppression response for protection of life and property.

All wildland fires of natural ignition may be managed to accomplish resource objectives per approved FMP. All human-caused wildland fires will receive a suppression response commensurate with firefighter/public safety, values to be protected, and costs.

All strategies developed within this section follow directives in the Wildland and Prescribed Fire Policy, Implementation Procedures Reference Guide and NPS RM-18.

Per BLM Draft Handbook 9211-1 and the Standards for Fire & Aviation Operations, wildland fires will receive an AMR based on initial and periodic evaluations of public and firefighter safety, current and predicted fire behavior, values at risk, potential damage from suppression activities, and resource availability. A WFSA will document this process until specific agency guidelines are developed and approved.

Appropriate Management Response (AMR) can vary by individual wildland fire, and may range from intense suppression action to monitoring, or combinations and degrees of intensity as required.

The decision process to evaluate each new fire start and assess ongoing wildland fires in the joint planning area should consider the following elements.

• Determine fire origin, location, and cause.
• Determine affected FMU.
• Obtain current and predicted weather.
• Determine immediate threats to life and property.
• Consider smoke and health concerns.
• Determine if necessary qualified personnel and fire management resources are available.
• Determine whether a qualified manager for the fire available.
• What are immediate and potential impacts to recreationists, visitors, users, and local communities.
• Determine the projected fire growth under normal and drought conditions.

Refer also to the BLM Extended Attack Complexity Analysis in the Operations Guide that assists the FPM and IC in considering the order for a Type II Incident Management Team (IMT).

Ultimate responsibility for all wildland fire management activity rests with the respective agency administrators. For operational issues, the "Duty" FPM for the agency hosting a wildland fire is responsible for implementation actions.

• The Regional FPM is responsible for reviewing Implementation Plans [Wildland Fire Implementation Plans (WFIPs)] for wildland fires with a "complex" rating or those Plans with a projected cost of greater than $500,000.
• The National FPM (NIFC) is responsible for review of WFIPs with projected costs of greater than $1 million.
• The Monument Superintendent is responsible for reviewing all Plans below a "complex" rating or projected costs less than amounts listed above.

The agency administrator, or representative, and the FPM or Incident Commander will prepare the WFSA.

Qualifications for all wildland fire management positions shall conform to guidelines set forth in the Wildland and Prescribed Fire Qualification System Guide (PMS 310-1).

For joint wildland fire operations, a duty Fire Program Manager (or designee) will be available during the normal fire season. Albuquerque Unit Dispatch will be kept apprised of who the individual is, the tour of duty, and notification procedures.

All wildland fire responses should be managed on site by a qualified IC, ranging from ICT5 (initial action) through ICT1, according to complexity. ICs will report directly to either the duty FPM or the Agency Administrator via a Delegation of Authority.

Consultation with a qualified Prescribed Fire Behavior Analyst (RXFA) is recommended (not required) to assist with preparation of a WFIP (NPS) and (BLM), provide input to fire potential, assessing the NPS Maximum Manageable Area (MMA) or the BLM allowable area and other duties as assigned.

The Long-Term Analyst (LTAN) assists with and/or prepares long-term predictions from models such as FARSITE and RE-RA and provides timely inputs to development of threshold conditions, season-changing events, etc., to the RXFA.

A qualified Fire Information Officer (IOFR) may be required on the Fire Use Team to provide up-to-date information to media and the interested public through radio and television announcements, press releases, and website updates (if online).

Other qualified positions may be required to manage wildland fires, and will be determined as conditions warrant. An interdisciplinary team (IDT) should be formed for interagency managed fires or fires of higher complexity.

Figure 3 shows the generalized decision process for both agencies based on the Policy Implementation Procedures Reference Guide and BLM Standards for Fire & Aviation Operations:

Fig. 3. Decision Process for Wildland Fires.

Information in the following paragraphs describe the actions necessary to safely manage wildland fires while considering resource and other values to be protected.

Documentation that supports the fire use decision process is in Appendix J ("Wildland Fire Implementation") and are referenced (in bold) in the following text.

This stage involves collection of necessary information with which to select an AMR strategy. The process shall include at least the following.

1. Initial Assessment

The data on the Fire Situation Form (or Size-Up Checklist, BLM Fire & Aviation Operations Guide, Chapter 9) are collected routinely by the Initial Attack Incident Commander (IAIC) on-site as soon as possible following ignition.

2. Decision Process and Strategy Selection

1. Assessments of degree of risk of identified threats to life, property, and resources. If threats cannot be mitigated adequately, managing the fire for resource benefits may have undesirable outcomes.
2. Relate potential outcomes with current and predicted fire behavior, given objectives for safety, costs, and effects on resources.
3. The risk assessment process may require a RERAP assessment or a qualitative assessment (Chart, Wildland Fire Relative Risk Rating, see Implementation Procedures Reference Guide, Fig. 4) to provide the Agency Administrator(s) with a "relative risk" of the fire.
4. The complexity assessment portion of the chart can originate with the Complexity Rating Worksheet (Appendix J). Also, fire danger indices (ERC for the historical period maximum, average, and 97^th percentile) read from a locally developed chart (or card).
5. Other fire activity. Are the Joint agency resources capable of safely managing current fire activity with appropriate skills positions and local resources? Consider the availability of Zone resources, the Fire Use Management Team, and the NPS Fire Use Module(s), etc.
6. Allow for Agency Administrator discretion based on issues external to the fire management program.

1. Suppression Response

• have a "no-go" determination made from the Decision Criteria Checklist,
• are human-caused regardless of FMU, or
• are within FMU-1.

Following a "go" decision from the on-duty FPM, an analysis of information is necessary 24 hours after completion of Stage I to determine short-term implementation actions (see Fig. 4).

The stage II WFIP analysis should consider completion of the following.

• Fire behavior predictions and risk assessments
• Short-Term Implementation Actions (format in Appendix J)
• Complexity Rating (Wildland and Prescribed Fire Complexity Rating Worksheet, Appendix J)
• Periodic Fire Assessment (Part I, Re-validation Checklist, Appendix J) [should be completed (by the IC) to determine the appropriateness of continued management of fire for resource benefits and to confirm the decision pertaining to the need to develop and document the WFIP – Stage III]

If the fire becomes active at some point and raises management concern, the decision by the IC (in consultation with the FPM) may be to actively manage the fire-use fire (limited holding, air attack, burnout, line construction, and mop-up actions are examples of some tactical options). Any combination of implementation actions can be employed, depending on factors such as fuel types, topography, barriers, local fire behavior, and available resources. The FPM will decide and document decisions (see above) and then direct resources. At this point, the decision from the Initial Action Record (if suppression or fire-use action is involved) will be relayed to the Agency Administrator. A resource advisor briefing also is considered.

This process assists the FPM in providing the Agency Administrator(s) with a long-term management strategy for the fire-use fire. However, this step need not occur until a threshold (Threshold Conditions, Appendix J) is reached or the periodic fire assessment process (see below) indicates the need.

The periodic fire assessment provides a process to evaluate a going fire-use fire and determine if continued management for resource benefits is appropriate. Also, the need to escalate management to Stage III (long-term) and provision for the Agency Administrator's concurrence of the assessment and proposed action is included.

A number of possible products result from this assessment.

The WFIP will define a specific geographical MMA for each fire managed as a WFRB. This feature defines the firm limits of management’s capability to accommodate the social, political, and/or resource impacts of a wildland fire. It will not be subject to change after it is identified and approved in the WFIP. The MMA will be bounded by highly defensible barriers (natural and/or human-made) to fire spread or by potential for successful holding actions (i.e., indirect attack tactics). The mitigation actions that optimize MMA defensibility and firefighter safety are

• mechanical and physical non-fire tasks,
• specific fire applications, and
• limited suppression actions (including, but not limited to, line construction, reduction of fuels concentrations, reduction of vertical fuel continuity, creation of fuel breaks/barriers around values to be protected, blacklining/burnout, and directly limiting fire spread).

In the case of longer range spotting from the fire over the MMA, it shall be treated as a separate fire, and an AMR will be determined based on criteria specific to the new fire.

The WFSA is a decision-making process in which the Agency Administrator describes the situation, compares strategy alternatives, evaluates expected effects of each alternative, establishes objectives and management constraints, selects the preferred alternative, and documents the decision. It serves as a contingency to undesirable outcomes; if the selected alternative does not accomplish objectives, the WFSA can be amended.

A WFSA is developed when

• a BLM wildland fire is being managed for resource benefits (daily validation required),

• the fire changes status to an unwanted fire,
• it is used to analyze alternatives that will accomplish resource benefits in combination with protection objectives, or
• see also threshold conditions listed below.

According to Policy guidelines, the Agency Administrator (or representative) and the FPM and/or IC prepare the WFSA.

The following elements are required to be addressed in the WFSA.

• Current Situation
• Evaluation Criteria
• Alternatives
• Analysis of Effects
• Record of Decision
• Review/Evaluation/Update
• Probability of Success
• Consequences of Failure

Refer to BLM Standards for Fire & Aviation, Chapter 10, for details.

The following Agency threshold conditions trigger a WFSA.

• The BLM decision process (from the Initial Assessment) indicates a "go" for wildland fire allowed to achieve resource objectives (except FMU-1)
• The NPS Periodic Fire Assessment indicates that the fire is a "no-go" (i.e., one or more elements of the Decision Criteria Checklist are not being met with the fire)
• A prescribed fire in FMU-1 or FMU-2 exceeds prescription and conversion criteria specified in the prescribed fire burn plan (potential benefits)
• A fire completely breaches the MMA or "Allowable Area" (unwanted fire)
• A fire partially breaches the MMA or "Allowable Area" (potential benefits)
• A fire is projected to leave the Joint Agency planning area, and the adjoining jurisdiction will not/cannot accept management of the fire
• The Agency Administrator (NPS Superintendent) will not approve a WFIP

An interdisciplinary team (IDT) will be convened by the FPM or designee when any resource concerns arise, smoke impacts increase, or other conditions warrant an IDT advisory approach to defining alternatives for a WFSA.

All suppression tactics and support actions will be selected commensurate with potential fire behavior and minimizing impacts to values to be protected. These decisions must be informed and based on interdisciplinary inputs to the extent possible with respect to conditions on the ground. Tactical decisions should include consideration of

• guidelines specified in RM-18 (NPS),
• guidelines specified in BLM Standards for Fire & Aviation Operations,
• protection protocols for cultural resources,
• minimum requirements for wilderness,
• assignment of a resource advisor if indicated for longer term actions, and
• special briefings of assigned personnel where values to be protected may become involved

BLM: Will assign accounts based on the type of wildland fire under management. Generally, the (2821) account is for fire suppression and (2823) is for wildland fire use for resource benefit.

NPS: FIREPRO accounts for these activities generally fall under the suppression account (PWE 249) or the WFRB (PWE 248) account.

Quality, long-term documentation records for all actions taken on a wildland fire are critical. The guidelines below will be followed.

Each agency is to follow internal policy with respect to records. All decision documents, monitoring data, supporting documentation, and operational documents (incident action plans, maps, unit logs, etc.) will be assembled and organized during and following a wildland fire management action.

Specifically, the fire report and file should contain the following.

• Copy of the complete WFIP (NPS)
• Copy of the BLM or NPS WFSA
• ICS-209s
• Copies of purchase orders, personnel request orders, etc. associated with fire
• All situation maps
• Personnel rosters, time sheets
• Press releases, clippings, video tapes
• Accident reports
• All monitoring data, spot weather forecasts, internet printouts
• Documentation of financial charges made against the assigned account number
• Narratives and unit logs
• Rehabilitation plan

It is particularly important to include IC narratives (see above) in regard to the effectiveness of planned strategies, trigger points, holding actions, and other pertinent factors encountered during the fire.

In case of joint wildland fires across agency boundaries, copies will be made of the entire package for each agency.

Wildland fire use actions should include provisions to provide timely and accurate wildland fire information. The following factors should be considered.

• Specific fire management objectives for involved agency(s)
• Information on fire location, behavior, and growth
• Information on fire effects
• Actions taken on the fire
• Any impacts on recreation users, visitors, public or private facilities, and services

Refer to Sec. 15, Public Information and Education, for additional guidelines.

Wildland fire effects are generally considered a natural part of a disturbance process. A major rehabilitation strategy is careful planning at all stages of a fire and skilled, reasoned implementation of minimum impact suppression techniques.

For large fires managed by an incident management team or fire-use management team, a rehabilitation assessment should be completed. For the NPS, the Intermountain Regional Office should be contacted for assistance. Similarly, the BLM State Fire Management Office should be contacted for guidance. If a rehabilitation team and plan preparation are determined to be needed, the team should be ordered through normal Zone channels.

General guidelines for rehabilitation teams are below.

• Waterbars will be installed on fire lines where erosion potential is high.
• Brush and other existing organic material will be moved back over fire lines where feasible.
• Campsites, helispots, staging areas, and other fire-related locations will be restored to natural conditions to the extent possible.
• Burned areas will not be seeded (NPS); native seed-bearing plants cut along the fire line can be scattered to promote natural regeneration from seed.

Prescribed fires are defined as all fires on parklands that are not wildland fires. These fires are planned, scheduled, organized, and implemented according to a rigorous protocol, the purpose of which is the safe accomplishment of approved resource objectives.

The joint prescribed fire program is guided by the following priorities.

1. Create defensible space around values to be protected.
2. Reduce hazard fuels accumulations in all FMUs.
3. Use fire as a resource tool to accomplish ecological objectives (FMU-2 and FMU-3).

The long-term objective is to treat fuels in FMU-3 to the point where the Unit can revert to a Fire Use for Resource Benefit strategy. Therefore, prescribed fire will be used along with non-fire strategies to manage fuels to a more natural level in this unit.

Under the Joint Plan, each agency will maintain and update annually a treatment schedule and map. Priorities for treatments are decided by the respective agency FPMs with staff input before the burn season (see Sec. 9.3).

A plan review process provides for proper review and approval procedures. General procedures are established for the agencies to follow and are listed below. However, it is important to recognize that each agency has internal protocols that also must be considered.

The following protocols are suggested.

• Preparation of an annual program priority list and map for archaeological/biological survey by the agency FPM before January 15. The list identifies projects in priority order and is submitted to the appropriate agency administrator or operational representative for distribution to resource staff in the current year and for 1 year in advance of planned execution.
• Field surveys conducted based on individual project maps in accordance with Sec. 106 NHPA (National Historic Preservation Act) and the Biological Assessment for Listed Species (Sec. 7, Endangered Species Act) and internal agency policy.
• Upon completion of project surveys and clearances, written documentation to the FPM, including any mitigative action(s) required.
• Following mitigating actions, original copy of burn plan routed with attached clearances by the agency FPM/burnboss through agency-directed routing protocol to agency administrator or designee for approval a minimum of 90 days before projected ignition date.

Other annual actions (several are agency-specific) that should be considered by the FPM or assigned burnboss in implementing a project prescribed fire program are the following.

• Reconnaissance [Global Positioning System (GPS)] and burn unit layout and compliance work (involve resources staff as needed to identify values to be protected, etc.)
• On-site documentation, fire effects monitoring plot layout, JHA elements, logistics, and identified mitigation work; complete complexity rating
• Analysis of potential ignition patterns with prescriptions, weather, fuels, and topography
• Coordination of all burns w/grazing allotments (deferment), Zone, cooperators, and media
• Smoke management considerations, monitoring, modeling, and consultation with the NMEID
• Personnel management, fiscal analyses
• Pre-burn notifications
• Briefings, logistics, contingencies
• Go/no-go decision process
• Organization, implementation
• Followup coordination, evaluations, cost summaries, record keeping, reporting requirements (a DI-1202 will be completed for each burn and submitted via input through relevant agency channels within 10 working days after declared out date)
• Submit data for Geographic Information System (GIS) addition to prescribed fire thematic map

BLM specific burn blocks for NCA lands are named and categorized by the grazing allotment in which they are located. A narrative and map for the prescribed fire treatment schedule is in Appendix I.

NPS prescribed fire units and a 10-year schedule also are located in Appendix I. This program has been ongoing for at least one entry treatment for several listed units.

A prescribed fire burn plan will be completed for each project in the schedule, whether for mechanical treatment or prescribed fire treatment. Individual agency burn plan format (on floppy disk) will be followed. NPS prescribed fire plans will comply with requirements of RM-18, Chap. 10.

Mechanical treatment methods will be a primary tool for management to reduce (hazardous) fuels continuity and create defensible space around values at risk. Prescribed fire follow-up treatments may or may not be employed.

Fuel-break construction should be identified on an appropriate GIS-compatible project location map (exact locations using a GPS).

Fuel break planning will consider the following guidelines (see also mitigation measures below).

• Some green-stripping to mask the thinning in areas used by visitors and recreationists
• Canopy thinned and feathered (or gradually opened) toward the area being defended against, with spacing necessary to prevent crownfire and/or "wind tunnel" effects
• Retention of a reasonable level of surface forbs and other plants to discourage exotic invasion
• Fuel-break width dependent on fuels conditions and other considerations
• Consider installation of key photo-points to monitor vegetative recovery, exotic invasion, etc.

All burn preparations involving pre-treatment with mechanical techniques will be outlined in a burn plan (on floppy disk in agency fire management office) and reviewed by appropriate resource staff as necessary. This may include, but is not limited to,

• snag felling, bucking in and around perimeter;
• thinning of tree densities along perimeter;
• pruning individual trees and brush along perimeter; and
• bucking and removal of logs near the control line only (through bucking into short lengths, piling, and burning on site)

The underlying concepts for these operations are routine application of the minimum requirement while providing for firefighter safety and minimizing risk of escape.

Specific mitigation techniques may include the following.

• Using existing or planned right-of-way construction lanes for fuel-breaks
• Considering a contract chipping unit for woody debris generated where fuelwooding is not feasible
• Considering lop-and-scatter techniques
• Considering species-specific, approved biocide treatments under direction of appropriate agency resource staff.

All fire personnel assigned to prescribed fires will meet the requirements of the individual agency. Burn bosses assigned to prescribed fires will be certified according to complexity and in the fuel type proposed for treatment. Additionally, all prescribed fire personnel assigned to prescribed fires will meet all national requirements for training and experience.

Documentation of prescribed fire projects will be prepared and filed in accordance with each agency policy.

All prescribed fires will be critiqued as deemed appropriate by the agency burn boss or FPM. Reviews can be convened by the NPS Superintendent (authority RM-18) or Field Office Manager (BLM Standards for Fire & Aviation Operations) as directed in agency policies.

In May 1998, the Environmental Protection Agency (EPA) released the "Interim Air Quality Policy on Wildland and Prescribed Fires," which provides general policy direction through states down to agencies implementing fire programs. However, the regional haze rules are in proposed status and will be finalized at a later date.

The key document is the permit issued by the State of New Mexico for open burning. This normally is issued following review of agency intent (via permit application) to manage for emissions that result in minimal impact to the public and sensitive receptor sites. The Cooperative Agreement among the New Mexico EID and federal land management agencies will be the guiding document for the permitting process.

This section highlights the best available management measures to be taken or considerations to be made when planning fire-use decisions and prescribed fires. The key elements and criteria identified from EPA, New Mexico state, and agency policies are as follows.

Prescribed fire planning (burnplans) should include the following.

• Actions to minimize emissions (SASEM runs, ignition patterns, favorable dispersion factors, etc.)
• Evaluations of smoke dispersion (weather forecasts)
• Public notification and exposure reduction procedures (recreationists, residents)
• Air quality monitoring

Burn execution evaluation criteria should include the following.

• Smoke effects avoided (favorable dispersion, no intrusions to sensitive areas, staying within NAAQS)
• Compliance with applicable laws and adherence to policy
• Frequency of verified public complaints
• Cooperation with downwind jurisdictions, regulatory agencies, and land managers
• Were all of the smoke elements of the burn plan implemented?

WFSA process evaluated to assess smoke effects criteria to include the following.

• Consideration of short- and long-term smoke effects
• Consideration of impacts on sensitive areas (including Class I)
• Evaluation of how decisions were tied to specific air quality criteria

Effective smoke management is based in part on completion of the following tasks.

• Development/improvement of workable monitoring protocols
• Consideration/implementation of year-round prescribed fire operations
• Develop/improve on a practical compliance protocol and visibility thresholds with New Mexico Environmental Improvement Division (EID)
• Application for Wildland Fire Use shall be made on an annual basis to the New Mexico Environmental Department/Air Quality Bureau. Reference MOU 16-R3-07-0006.

The objective of fire-related research is to add cumulatively to scientific understanding and knowledge of the role of fire in the malpais ecosystems so that adaptive management practices are continually evolving. It is important that studies be conducted in conjunction with implementation of the Fire Management Plan.

Fire managers need sound, management-oriented science information with which to determine fire management objectives and strategies, natural ranges of variability for vegetation types, fire frequencies, fire effects, and historic fire intensities.

Specifically, the following general areas for agency-specific or joint agency fire-related scientific investigation should be taken into account.

• Understand more of paleo fire history (joint agency)
• Assess the effects of fire (prescribed fire/fire use) on old-growth ponderosa pine (joint agency)
• Assess ranges of fuels accumulation rates for various forest fuels (agency-specific)
• Understand the evolution of pinyon-juniper woodlands and the role of disturbance regimes such as fire in shaping this cover type; define a desired future condition for same (agency-specific)

the fire effects monitoring program supports joint agency objectives of the fire management program. However, the BLM has no specific policies relating to fire effects monitoring, and will employ NPS monitoring wherever feasible and authorized.

The goals of the joint-agency monitoring program are as follows.

• Verify that Joint Plan prescribed fire program objectives are being met through documentation and analysis of fire effects.
• Increase knowledge of fire behavior and effects on ecosystems.
• Document basic information for all prescribed fires and keep all monitoring information organized and properly backed-up.
• Adhere to standardized data collection techniques for FMH plots.
• Use information to help develop information for the public.
• Identify areas in which research should be initiated.
• Provide adequate training opportunities to crewmembers to further their career development.
• Follow trends in plant communities as related to fire effects.

Appendix G documents FMH-4 (Monitoring Type Descriptions), including statements of desired future condition, for the major monitoring types occurring in El Malpais National Monument. Additional monitoring types and descriptions may be developed in the future. A monitoring plan also is included in Appendix G and will be updated according to a schedule described in the plan. The Bandelier National Monument fire effects monitoring crew is responsible for implementing the monitoring program for El Malpais National Monument.

Each NPS burnplan, Wildland Fire Implementation Plan, or other project plan that involves fire treatment shall contain monitoring objectives that are designed around the resource/fire treatment objectives. The monitoring objectives detail the immediate, short-term and long-term information necessary to adequately quantify and later assess fire effects. Evaluation of monitoring data is a responsibility of Bandelier National Monument.

Managing a total fire program is among the highest risk operations that any land management agency can undertake. The first priority consideration in any fire management action is firefighter and public safety.

Many human safety-related issues focus on the altered vegetative communities in the Monument and NCA. One consequence of the current high levels of hazard fuels resulting from years of fire exclusion is related to the potential for uncontrollable crownfire behavior. The prescribed fire program is part of the mitigating action, particularly in the developed areas. Creation of defensible space as a safety-related action requires careful planning along with prudent applications of mechanical fuel reduction and debris burning. The same can be said for the fuels management program on agency wildlands where firefighter safety may be compromised during severe years when resistance to control is high to extreme.

• All fire personnel shall meet appropriate qualifications, including medical requirements, for all fire assignments (per NPS RM-18, DO-18 and BLM Standards for Fire & Aviation).
• Fire personnel shall be equipped with personal protective equipment appropriate to their incident assignments.
• All fire personnel and cooperators will comply with NWCG, BLM, and NPS fitness and personal protective equipment standards while assigned to fire incidents except for initial action by mutual aid cooperators.
• Fire personnel assigned to fire line operations will complete a minimum of 8 hours of basic wildland fire training, 8 hours refresher for FFT2, and safety training before incident assignments.
• All wildland fire incidents that result in human entrapment, fatalities, or serious injuries or result in incidents with potential for the above will be reported and investigated.
• All safety standards and guidelines identified within the Interagency Incident Business Management Handbook and SWA guidelines will be followed.
• Management of all wildland fire incidents will comply with interagency risk management standards.
• The JHA will be used for projects that present potential hazardous activities and for jobs that require employee use of out-of-the-ordinary personal protective equipment; refer to RM-18 (NPS) or BLM Standards for Fire & Aviation Operations for JHA process and format.
• Documented safety meetings will be conducted as needed under the supervision of the Suppression Manager and Prescribed Fire Manager.
• Accidents will be reviewed to determine areas needing improvement, not as a punitive measure, normally held between the supervisor and the employee.
• All safety protocols for the aviation program will follow agency-specific standards; The Interagency Helicopter Operations Guide (IHOG) is now fully used for helicopter operations.

Public information and education is the cornerstone of a successful joint fire management program. An informed and supportive agency staff, local and visiting public, recreationists, partner organizations, and youth will contribute greatly to the success of the fire program and the resources that it is designed to benefit.

Joint strategies for the public information and education program are the following.

• Establish a network of contacts and develop a proactive process that disseminates current and accurate fire information to the agency staffs, community, general public, media, etc.
• Incorporate the principles of fire’s role in the El Malpais ecosystem and the importance of fire as a resource management tool into Monument and NCA interpretive programs, exhibits, video, interpretive trails through old burns, and periodicals, brochures, civic group presentations.
• Establish a joint-agency website to promote prevention and wildland fire education objectives
• Forward all fire-related press releases to the respective agency administrator or public information officer and keep members of the administrative staffs well informed of fire activity.
• Display roadside sign exhibits.
• Develop public information programs that promote the benefits of firewise community planning, defensible space, and mechanical fuel reduction.
• Establish rapport with local press and media representatives and accommodate all interview requests that will benefit the joint agency planning area by promoting the fire program.

The purpose of the step-up configuration is to provide a logical sequence of actions to initiate in response to changing levels of fire danger or active fire status. The step-up plan (Table 5) is outlined below.

It is important that wildland and prescribed fire personnel establish and maintain close coordination with relevant agency resource staff when managing for the protection of sensitive resource values. These values may include, but are not limited to, threatened and endangered species, cultural resources, historic sites, scenic values, and administrative facilities.

Cultural resources are irreplaceable and non-renewable. Therefore, any potential negative impacts would be cumulative and permanent.

Mitigation measures to protect cultural resources will be specified by a staff cultural resource specialist, either assigned to review project level plans or to act as and RA on wildland and prescribed fires.

Approved mitigation strategies may involve one or more of the following.

• Isolating sites or features that are deemed vulnerable to fire
• Treating sites with approved retardant
• Removing heavy fuels that cause long-duration heating
• Temporarily re-locating cultural materials under direction of a cultural resource specialist
• Overhead and fire crew briefings on specific protective measures for cultural sites

Species locations and/or preferred habitats should be obtained during the planning phase of project work. This should be accomplished in consultation with the NPS Chief, Resources Management (EL Malpais National Monument) or the BLM Field Office staff Biologist assigned to the NCA or designated representatives.

The Environmental Assessment contains a discussion of mitigating actions that can be taken by fire staff personnel to avoid any sensitive species or habitat. The Environmental Assessment and Record of Decision are in Appendix D.

Interface mitigation techniques should be used to prevent or reduce any potential negative impacts to modern facilities, developments, or other values on joint agency lands.

This Joint Plan is subject to informal review annually and formal review every 5 years. Formal review should be accomplished jointly with alternating agencies acting taking the lead.

Appendix L will contain a compendium of policy or other official procedural changes as they become approved and distributed.

Critiques will be performed using the following guidelines.

• All fires occurring on either NCA or Monument lands will receive a minimum review to evaluate successes and problem areas such as initial response, "hotline" review, control strategies employed, safety concerns, and need for equipment replacement.
• Reviews will be conducted by one of the following: IC, burnboss, FPM, or as assigned by agency administrator.
• Incident management teams will participate in a close-out session at the discretion of the agency administrator to identify any areas of concern or of particular success and take care of unfinished business before transition to a local organization (refer to NPS RM-18, Chapt. 13 or BLM Standards for Fire and Aviation Operations Operations, Chapt. 11)

For the NPS, a regional or national review may be indicated if one of the following occurs.

• Fire crosses Monument boundary onto another jurisdiction other than BLM.
• Fire resulted in adverse public or media attention.
• Fire involved serious injury or fatality, significant property damage.
• Fire results in controversy involving another agency or ownership.

All entrapments and shelter deployments will be reported and investigated as soon as possible following the incident. Follow National Interagency Fire Center (NIFC) guidelines for this administrative action.

Changes to this plan that require approval and concurrence from both agency administrators will be submitted with a cover sheet for signatures and dates, and will replace the original text following signing.

The following agencies were consulted.

• Cibola National Forest

• New Mexico State Forestry

• New Mexico State Environmental Improvement Division

• Ramah Navajo Chapter, Navajo Nation

• Acoma Pueblo

• Cibola County

• Zuni Tribe

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______. 1999. Prescribed Fire Planning, Implementation, and Evaluation Procedures Review. 9 pp.

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Appropriate Management Response. Specific actions taken in response to a wildland fire to implement protection and fire use objectives.

Conditional Wildland Fire Use. Refers to a temporary Fire Management Unit (see definition below), where once fuels management objectives are accomplished, the Unit will be added to the Wildland Fire Use (see definition) Unit.

Fire Management Plan. A strategic plan that defines a program to manage wildland and prescribed fires and documents the fire management program in the approved land use plan. The plan is supplemented by operational plans such as preparedness plans, preplanned dispatch, prescribed fire plans, and prevention plans.

Fire Management Unit. Any land management area definable by objectives, topographic features, access, values-to-be-protected, political boundaries, fuel types, or major fire regimes, etc., that set it apart from management characteristics of an adjacent unit. FMUs are delineated in FMPs. These units may have dominant management objectives and preselected strategies to accomplish these objectives.

Holding Actions. Planned actions required to achieve wildland and prescribed fire management objectives. Specific holding actions are developed to preclude fire from exceeding the MMA (or Allowable Area).

Initial Attack. An aggressive suppression action consistent with firefighter and public safety and values to be protected.

Management Action Points. See Trigger Points.

Maximum Manageable Area (MMA).^** The firm limits of management capability to accommodate the social, political, and resource impacts of a wildland fire. When established as part of an approved plan, the general impact area is fixed and not subject to change. If they are developed after the ignition, their definition will occur during the Wildland Fire Implementation Plan Stage III process. In the event a fire occurs in a preplanned MMA and the local unit determines that this MMA is not the best suited alternative for present conditions, a new MMA can be developed as part of the Stage III process. After this occurs, the Stage III MMA becomes the firm limits of the fire and is fixed.

Mitigation Actions. Those on the ground activities that will serve to increase the defensibility of the MMA; check, direct, or delay the spread of fire; and minimize threats to life, property, or resources. These actions will be used to construct firelines, reduce excessive fuel concerntrations, reduce vertical fuel continuity, create fuel breaks or barriers around critical or sensitive sites or resources, create "blacklines" through controlled burnouts, and to limit fire spread and behavior.

Preparedness. Activities that lead to a safe, efficient, and cost-effective fire management program in support of land and resource management objectives through appropriate planning and coordination.

Prescribed Fire. Any fire ignited by management actions to meet specific objectives. A written, approved prescribed fire plan must exist, and NEPA requirements must be met, prior to ignition.

Prescription. Measurable criteria that define conditions under which a prescribed fire may be ignited, guide selection of appropriate management responses, and indicate other required actions. Prescription criteria may include safety, economic, public health, environmental, geographic, administrative, social, or legal considerations.

Trigger Points. Either geographic points on the ground or specific points in time where an escalation or alteration of management actions is warranted. These points are defined and the management actions to be taken are clearly described in an approved Wildland Fire Implementation Plan (WFIP) or Prescribed Fire Plan. Timely implementation of the actions when the fire reaches the action point is generally critical to successful accomplishment of the objectives.

Wildland Fire. Any nonstructure fire, other than prescribed fire, that occurs in the wildland. This term encompasses fires previously called both wildfires and prescribed natural fires.

Wildland Fire Implementation Plan (WFIP). A progressively developed assessment and operational management plan that documents the analysis and selection of strategies and describes the appropriate management response for a wildland fire being managed for resource benefits. A full WFIP consists of three stages. Different levels of completion may occur for differing management strategies (ie, fires managed for resource benefits will have two-three stages of the WFIP completed while some fires that receive a suppression response may only have a portion of Stage I completed).

Wildland Fire Situation Analysis (WFSA).^*** A decision-making process that evaluates alternative management strategies against selected safety, environmental, social, economic, political, and resource management objectives.

Wildland Fire Suppression. An appropriate management response to wildland fire that results in curtailment of fire spread and eliminates all identified threats from the particular fire. All wildland fire suppression activities provide for firefighter and public safety as the highest consideration, but minimize the loss of resource values, economic expenditures, and/or the use of critical firefighting resources.

Wildland Fire Use. The management of naturally ignited wildland fires to accomplish specific prestated resource management objectives in predefined geographic areas outlined in FMPs. Operational management is described in the WFIP. Wildland fire use is not to be confused with "fire use" which is a broader term encompassing more than just wildland fires.

See attached Environmental Assessment.

1. Joint Minimum Tool Flow Chart (FMU-2)

2. Joint Minimum Impact Suppression Tactics (MIST) Guidelines

3. Initial Attack Operating Plan, Albuquerque Zone

4. Delegation of Authority (NPS)

5. Delegation for Field Office Fire Management Officers (BLM)

6. Pre-Attack Plan, El Malpais NM (in revision)

Interior agency fire management guidelines require the fire manager and firefighter to consider and select on-ground management tactics that are commensurate with the fire's existing and potential fire behavior, and will also leave minimal impact to the environment.

The intent of these guidelines are to serve as a checklist for all assigned wildland fire personnel. Application of minimum impact fire management techniques originate with instructions that are clear, understandable, stated in measurable terms, and communicated verbally and in writing. Evaluation of these tactics both during and after implementation will further good land stewardship ethics during all fire management operations.

AGENCY ADMINISTRATOR - INCIDENT MANAGEMENT TEAM - FIREFIGHTER CONSIDERATIONS FOR MINIMUM IMPACT SUPPRESSION TACTICS (MIST)

Command and General Staff:

1. Evaluate each and every suppression action during planning and strategy sessions for conformance with agency administrator's minimum impact objectives.
2. Include agency resource advisor/representatives in sessions stated above.
3. Discuss minimum impact management techniques with overhead during briefings to ensure understanding of planned tactics.
4. Ensure minimum impact management techniques are implemented during resource-disturbing activities.

Planning Section.

1. Use resource advisor to evaluate planned management tactics commensurate with land and resource protection objectives, and incident objetives.
2. Utilize an assessment team to facilitate a different perspective of the overall situation.
3. Use additional consultation from the public or outside the agency, especially for long-term fire situations.
4. Adjust line production rates to reflect the minimum impact tactics.
5. Consider a dozer brush blade for line construction when dozer use is determined necessary.
6. Leave some green trees randomly in the fireline.
7. Ensure that instructions for MIST are included in the IAP (Incident Action Plan).
8. Detail and quantify mop-up objectives inside the fireline.
9. If helicopters are assigned, consider long-line delivery versus additional helispot construction.
10. Consider coyote camp versus fixed campsites in sensitive areas.
11. In extremely sensitive areas, consider use of portable facilities (sanitation, cooking, etc)

Operations Section.

1. Emphasize minimum impact management techniques during each operational period briefing, and for division briefings.
2. Explain expectations for instructions included in IAP.
3. Consider judicious use of aircraft.
4. Use natural openings for possible helispots.
5. Monitor suppression tactics.
6. Distribute field guide to appropriate supervisory personnel.

Logistics Section.

Ensure actions performed around areas other than Incident Base, ie, dumpsites, camps, staging areas, helibases, etc. result in minimum impact on the environment.

Division/Group Supervisor and Strike Team/Task Force Leader.

1. Ensure crew superintendents, crew reps and single resource bosses understand what is expected during the operational period.
2. Discuss minimum impact tactics (MIST) with crew(s).
3. Ensure that dozer and falling bosses understand expectations.
4. Monitor suppression tactics/conditions.

Crew Superintendent.

1. Ensure/monitor results expected.
2. Discuss MIST with crew.
3. Provide timely feedback on implementation of MIST.
4. Look for opportunities to further minimize impact to land and resources during suppression and mop-up.

IMPLEMENTATION GUIDELINES

Safety will not be compromised. Follow the 10 Standard Orders and 18 Situations that Shout Watch Out.

Line Construction.

1. Select procedures, tools, and equipment that least impact the environment.
2. Consider the use of water as a tactic versus line construction.
3. In light fuels, consider:

• Cold trailing
• Use of natural barriers
• Consider burn-out
• If constructed line is necessary, use minimum width and depth to check fire spread and patrol frequently.
• Minimize bucking in line construction

4. Aerial fuels -- brush, trees, snags

• Minimize tree cutting, including burned trees and snags;
• Live trees will not be felled unless determined they could pose a threat to the line; if tree felling is necessary, flush-cut stumps.
• Scrape around base of trees near fireline versus felling

5. Indirect attack

• Dont fall snags on the intended unburned side of constructed fireline, unless an obvious safety hazard (consult with division safety officer)
• Consider alternatives to falling, ie, explosives, bucket drops, etc.

Mop-up.

1. Consider using "hot-spot" detection devices along perimeter to locate heat.
2. Do minimal spading;
3. Cold-trail charred logs near fireline
4. Minimize bucking of logs to check for heat; roll logs
5. Refrain from building bone-yards
6. Allow large materials near line to burnout if possible
7. Allow burning trees/snags to burnout, if identified as safety precaution and communicated
8. Falling should be a last resort for burning trees/snags; use soil & water

Campsites and personal conduct.

1. Use existing campsites.
2. If existing campsites unavailable, consider sites away from visitor access routes and destinations.
3. Select impact-resistant sites such as rocky or sandy soil, but avoid sensitive meadows, along streams or wetlands
4. Change camp location if ground vegetation in and around the camp shows signs of excessive wear.
5. Do not clear vegetation or trench to create bedding spots
6. Toilet sites should be located minimum of 200 feet from any water source. Catholes should be dug 6-8 inches deep
7. Select alternative travel paths between camp facilities, and between camp and fireline

General rehab guidelines.

1. Firelines.

• After fire spread is checked, fill in deep/wide firelines, and under- cut trenches
• Waterbar as necessary
• Ensure stumps are flush-cut
• Camoflage cut stumps near visitor use areas or routes
• Scatter any trees or large brush to avoid unnatural appearance where necessary

2. Camps.

• Restore to natural conditions as possible.
• Scatter firerings, charcoal, blend into natural surroundings
• Pack out all trash, garbage and unburnables
• Remove obvious signs of human activity to extent possible (flagging, foil, litter, etc)
• Restore helispots
• Backfill latrines and catholes.

This Operating Plan is between the United States Department of Interior; U.S. Fish and Wildlife Service (USF&WS), National Park Service (NPS), Bureau of Land Management (BLM), Bureau of Indian Affairs (BIA), the United States Department of Agriculture-Forest Service (USFS), and the State of New Mexico; Energy, Minerals, and Natural Resources Department’s Forestry Division (FD).

I. AUTHORITY

Authority of this Operating Plan is derived from and part of the current statewide Joint Powers Agreement. Initial Attack Coordination Meeting, between the above-mentioned Federal and State agencies, which calls for the preparation and adoption of an Initial Attack Plan and initial attack zones. As adopted and amended this Initial Attack Plan and zones will become part of the current Joint Powers Agreement as exhibits.

II. PURPOSE

The purpose of this Operating Plan is to establish an agreement for wildfire initial attack procedures for the Albuquerque Zone, State of New Mexico.

III. RESPONSIBILITY

It is mutually agreed that each party of this Initial Attack Plan will independently perform initial attack services as defined in Section IV below within those zones for which they have assumed that responsibility. Such initial attack action shall continue until the fire is either declared out , escapes initial attack or is determined to a management response fire.

If for any reason the initial attack agency cannot perform those initial attack services, the responsible agency shall be notified as soon as possible.

It is mutually agreed that each party of this Initial Attack Plan will retain ultimate responsibility for all fire management actions on lands under its administrative jurisdiction.

IV. DEFINITIONS

A. Initial Attack means the total efforts undertaken by the responding agency to either suppress or implement the appropriate action on a fire up to the point in time where such effort is determined to be unsuccessful and/or the fire is declared an escaped fire. Reimbursable work begins when the responsible agency is notified of the escaped fire or the determination of management response.

B. Escaped Fire means a wildfire that exceeds the suppression capabilities of the initial attack effort.

C. Incident Commander means the individual responsible for the management of the fire incident.

D. Responsible Agency means the federal or state agency that has the responsibility for fire protection on the lands which the fire is burning.

E. Initial Attack Zones means that agreed upon areas assigned to each party as its responsibility for Initial Attack efforts.

F. Notification of Initial Attack Action is documentation between the initial attack agency and the responsible agency of dispatch action taken following the report of a fire.

G. Initial Attack Agency is that agency which has negotiated annually the closest and most available fire protection resources for a designated geographical area.

H. Management Response are specific actions taken in response to a wildland fire to implement protection and fire use objectives.

V. DESIGNATED ZONES OF RESPONSIBILITY

A. Initial attack zones have been established on closest and available fire protection resources and capabilities of the designated initial attack agency. A map of these zones is attached hereto and made a part of this plan (Exhibit 1). The designated initial attack zones are based on historical wildfire incidents and are agreed to by off-setting for Federal and non-Federal expenditures of funds, and thereby mutually beneficial and cost effective. Also, it is agreed that Federal protection (cost) on non-Federal land will not exceed the protection by the State. Conversely, the State will not expend funds to a greater extent in protecting Federal land than would the Federal agencies in protecting Federal lands.

B. The agency responsible for initial attack should make reasonable effort to contact private landowners in advance of fire season. The objective of such contacts is to briefly explain the initial attack responsibilities and obtain gate keys or permission by the landowner to cut fences or gates for access to fires. Any damage to private lands for access should be restored following control of the fire. These contacts should be made by local unit personnel who have the assigned initial attack responsibility.

C. For specific management areas designated by the responsible agency the initial attack agency will initial attack fire in those areas commensurate with the fire management objectives for that area.

VI. SPECIFIC PROVISIONS

A. Initial Attack

1. Communication. Each agency will submit an initial report to cooperating agencies of their available resources by May 1 of each year. This report shall be updated as changes occur.

a. Prompt notification to the responsible agency as soon as practical after the initial dispatch. See Exhibit II.

b. The notification of the Initial Attack Action Report will be communicated to the responsible agency within 24 hours of the initial dispatch. See Exhibit II.

c. Authorization has been given between agencies to exchange radios and radio frequencies for fire suppression activities.

d The responsible agency will provide guidance to the initial attack agency for special objectives.

2. Coordination

a. Initial attack agency shall abide by responsible agency’s procedures in dealing with ownership involved.

b. The initial attack agency will continue dispatching services on fires for which initial attack actions are being undertaken.

c. Payment. The initial attack agency will bear the initial attack costs unless otherwise negotiated.

d. Coordination. A zone coordination group comprised of zone board members or their designees will be established when the need arises.

e. The responsible agency will provide maps and fire management objectives for the designated management areas to zone dispatch and affected initial attack agencies prior to the fire season.

f. The need for a Resource Advisor will be determined by the responsible agency.

B. Escaped Initial Attack Fire

1. Communication

a. The initial attack Incident Commander shall notify the dispatcher when the fire has escaped initial attack.

b. The time of escape, date, from whom, and to whom the report is made, must be documented by the dispatcher, which must be reported immediately to the responsible agency. See Exhibit III.

c. In situations where the responsible agency requests the initial attack agency to continue suppression actions , an Incident Status Summary (ICS-209) must be submitted daily to the responsible agency.

2. Coordination

a. Responsible agency will initiate whatever action is necessary to suppress the fire and assume suppression control of the fire as soon as qualified fire personnel arrive at the fire.

b. As appropriate, suppression plans shall be negotiated and agreed to by coordinating agencies.

3. Payment

a. Upon notification of an escaped fire, the responsible agency assumes fiscal responsibility as per current statewide Joint Powers Agreement for agencies with wildfire protection responsibilities.

b. Fires that are entirely on lands under State jurisdiction:

Upon notification of an escaped fire, the state will designate a comptroller or authorized individual to approve expenditures and fiscal responsibilities.

c. Initial attack agency shall submit an estimate of reimbursable suppression cost to the responsible agency within 30 days from the time that the service was rendered. See Exhibit IV.

VII. GENERAL PROVISIONS

A. News Releases. Involved agencies will coordinate news release items pertaining to the current fire situation to the media.

B. Mop Up and Abandonment Checks. The initial attack agency will be responsible for mop up and abandonment checks, unless otherwise negotiated.

C. Fire Statistics (Fire Report, Records, etc.).

1. The origin of the fire denotes the responsible agency.

2. The responsible agency has the responsibility of preparing their statistical fire report. Information for this report shall be provided by the initial attack agency.

D. Effective Date. This plan is effective when the responsible agency has signed the plan.

E. Review and Revisions.

1. This plan will be reviewed annually before March 15 of each year.

2. The term of this agreement shall be five (5) years and coincide with the current statewide JPA. Participation in the Initial Attack Plan may be terminated by any party by notification in writing to all other parties at least 90 days prior to the intended date of termination. By such termination, no party may nullify obligations already incurred for performance or failure to perform prior to the notice of termination. Interim modifications of this plan may be made subject to agreement by parties concerned to correct unworkable situations.

3. Changes in initial attack jurisdictional areas will be made as attachments to this plan and will be signed only by those parties involved in the jurisdictional changes. Amendments will be submitted to the Forestry Division to be placed in the Joint Powers Agreement.

4. Copies of the master Joint Powers Initial Attack Plans and maps of initial attack zones will be maintained by the Forestry Division.

5. Individual signature sheets will be attached to the final original copy.

I. Albuquerque Zone Initial Attack Zone Map(s)

II. Notification of Initial Attack Action

III. Notification of an Escaped Fire

IV. Fire Reimbursement Estimate

(MAPS ON FILE, ALBUQUERQUE ZONE, BLM ALBUQUERQUE FIELD OFFICE, AND EL MALPAIS NATIONAL MONUMENT)

1. TO (Responsible Agency):

2. FROM (I.A. Agency):

3. BY (Dispatcher):

4. INCIDENT NAME:

5. DATE OF DISCOVERY:

6. TIME OF DISCOVERY:

7. LAND STATUS:

9. GENERAL LOCATION:

10. SIZE:

11. COVER (Fuels):

12. GENERAL FIRE BEHAVIOR:

13. CAUSE:

14. RESOURCES RESPONDING:

15. DATE OF NOTIFICATION:

16. TIME OF NOTIFICATION:

17. REMARKS:

1. TO (Responsible Agency):

2. FROM (I.A. Agency):

3. BY (Dispatcher):

4. FIRE NAME:

5. LEGAL T: R: S:

6. DATE OF ESCAPE:

7. TIME OF ESCAPE:

8. SIZE:

9. RECEIVED BY (Parent Agency):

10. DATE OF NOTIFICATION:

STATE FIRE NUMBER

FIRE NAME (STATE)

DATES OF FIRE INCIDENT

FIRE NAME________________ FIRE NUMBER________________________

ESTIMATED REIMBURSABLE SUPPRESSION COSTS

I. Payroll................................................................................. $

II. Travel.................................................................................. $

III. Equipment (Description)

IV. Aircraft (Description of Aircraft).................. $

A. Fixed Wing ............................................. $

B. Rotary .................................................... $

V. Retardant

A. Fire Order Numbers ................................. $

B. Gallons of Retardant Delivered .................. $

VI. Supplies

A. Fire Order Numbers ................... $

B. Type of Supplies Shipped (list)

1. ....................... $

2. ...................... $

3. ...................... $

4. ...................... $

5. ...................... $

6. ..................... $

7. ..................... $

8. ..................... $

VII. Indirect Cost %............................................................... $

If there are any questions pertaining to this reimbursement request, who should be contacted?

NAME TELEPHONE NO. (COMMERCIAL)

Date: ___________________Time:___________________

To: _________________________________________, Incident Commander

From: Superintendent, El Malpais National Monument

Subject: Delegation of Authority

As Superintendent of El Malpais National Monument, I have the ultimate responsibility for protection of the park's resources, visitors and employees. By means of this memorandum, I am delegating authority to manage the _______________________Fire to you and your Incident Management Team. My agency administrator's representative will be _____________________.

This is an area of high environmental quality and sensitivity. Much of the park is under consideration for wilderness designation.

Objectives for fire management are:

1. Safety of suppression resources and the public is the highest priority objective.

3. Burned acres are much preferred over long-term suppression scars, and should be factored into decisionmaking.

4. Cultural resources must receive appropriate protection. Consultation with the Cultural Resource Specialist will be made available to provide appropriate information and input.

5. Kipukas (meadows surrounded by lava) and lava tubes are particularly sensitive resources.

Resource Advisor(s) assigned: ___________________________; _______________________.

Information Officer assigned: ___________________________________________________.

Ref: BLM Standards for Fire and Aviation

The following pages contain (FMH-4) sheets for the monitoring types found in El Malpais National Monument.

A full monitoring plan is in preparation.

Monitoring type code: FJUMO1T06

Date Prepared: 8/26/99

Preparers: Schultz, Trader, Anderson

Resource Management Goal: To employ management ignited prescribed fire to reduce hazardous fuel buildups, ensure public safety, protection of property, and resource values; all in a manner that simulates the natural ecosystem function of fire as determined through fire ecology/history research.

Target Conditions: Establish and maintain a vegetative structure and mosaic within the natural range of variability for the southwestern pinon-juniper woodlands.

Burn Prescription: Burns may occur at anytime from April through October; grasses are nearly or completely cured; heading or backing fires depending on fuel moisture and control needs; fuel moistures: 1-hr 4-8%, 10-hr. 5-10%; 1000-hr. 10-15%; midflame windspeed 0-10 m.p.h; rate of spread 1-140 chains per hour.

1. Reduce pinon and juniper pole tree density by 30-70% within 5 years postburn
2. Reduce pinon and juniper seedling tree density by 30-80% within 5 years postburn

1. Pole tree density by species (pinon and juniper)
2. Seedling tree density by species (pinon and juniper)

1. Increase native herbaceous vegetation percent cover by at least 15% within 3 years postburn
2. No increase in non-native herbaceous vegetation percent cover within 3 years postburn
3. No increase in bare ground percent cover within 3 years postburn

1. Native herbaceous vegetation percent cover
2. Non-native herbaceous vegetation percent cover
3. Bare ground percent cover

Physical Description: This vegetation type typically occurs on south and west facing slopes of cinder cones, in isolated kipukas, ridges on the east side of the monument, and limestone and sandstone ridges on the west side of the monument. Bleakly (1994) notes that in its purest form, PJ "…is best developed on sedimentary substrates; on cinders and other substrates, and ponderosa pine are commonly present."

Rejection Criteria: PIPO is >30% of the overstory; bare soil and/or rock >30%. Cave entrances, collapse areas, seeps, large rock outcrops, cultural resources and/or structural archeological sites in plot, areas within 25 meters of maintained roads or trails, areas within 50 meters of burn unit boundaries, canyon walls (slope exceeds 30%), and areas with standing water (10% of edge of plot can be in gullies and/or drainages.

Bibliography: Bleakly, David L. 1994 The Vegetation and flora of El Malpais National Monument. Unpublished report to El Malpais National Monument, Grants, NM. 17 p with 2 (sketch) maps.

Monitoring type code: FBOGR1T02 (basalt substrate, west side of park)

Date Prepared: 8/26/99

Preparers: Schultzz, Trader, Anderson

Resource Managment Goal(s): Restore fire as a keystone natural process. Reduce fine fuels and litter. Reduce shrub % cover. Increase native grass density. Reduce Pinon, Juniper and Ponderosa Pine encroachment.

Burn Prescription: Burns may occur anytime when grasses are nearly or completely cured; heading or backing fires depending on fuel moisture and control needs; fuel moistures: 1-hr. 4-8%, 10-hr. 6-10%, 1000 hr. 10-20%; midflame windspeed 0-10 m.p.h.; flame length1-12’; rate of spread 1-140 chains per hour.

Treatment (Fire Management) Objectives:

1. Reduce pinon and juniper seedling tree density where present by at least 30% within 5 years postburn
2. Reduce pinon and juniper pole tree density where present by at least 40% within 5 years postburn

Monitoring Type Variables: seedling tree density (pinon & juniper), pole tree density (pinon & juniper)

1. Increase native perennial grass percent cover by at least 10% within 3 years postburn.
2. No increase in non-native herbaceous vegetation percent cover within 3 years postburn.

1. Reduce brush density by at least 50% within 3 years postburn.

1. No increase in bare ground percent cover within 3 years postburn

Additional Monitoring Type Variables of Interest: native perennial grass percent cover, non-native herbaceous vegetation percent cover, brush density, bare ground percent cover

1. East side of ELMA:

Biological Description: These grasslands are typically dominated by blue grama (Bouteloua gracilis). Other typical grasses include other gramas, little bluestem (Schizachyrium scoparium), three-awn (Aristida sp.), squirreltail (Elymus elymoides), junegrass (Koeleria macrantha), and ring muhly (Muhlenbergia torreyi). Common shrubs are rabbitbush (Chysothamnus nauseosus), gray horsebrush (Tetradymia canescens), sages (Artemisia sp.), and broom snakeweed (Gutierrezia sarothrae). Oneseed junipers (Juniperus monosperma) are occasionally found on outcrops (Bleakly, 1994)

Rejection Criteria: Overstory tree cover > 10%, Pole tree cover >20%; bare soil and rock >30%, cave entrances, collapse areas, seeps, large rock outcrops, cultural resources or structural archeological sites in the plot; areas within 50 meters of the burn unit boundary, areas within 25 meters of a maintained trail or road; canyon walls (slope exceeds 30%); areas with standing water (10% of edge of plot can be in gullies and /or drainages.

Special Notes: These plots are in blue grama grasslands, but they have been set up as forest plots to monitor the area for potential invasion by trees.

Bibliography: Bleakly, David L. 1994? The Vegetation and flora of El Malpais National Monument. Unpublished report (draft?) to El Malpais National Monument, Grants, NM. 17 p with 2 (sketch) maps.

Monitoring type code: FBOGR2T02 (sandstone substrate, eastside of park)

Date Prepared: 8/26/99

Preparers: Schulz, Trader, Anderson

Resource Managment Goal(s): Restore fire as a keystone natural process. Reduce fine fuels and litter. Reduce shrub % cover. Increase native grass density. Reduce Pinon, Juniper and Ponderosa Pine encroachment

Burn Prescription: Burns may occur anytime when grasses are nearly or completely cured; heading or backing fires depending on fuel moisture and control needs; fuel moistures: 1-hr. 4-8%, 10-hr. 6-10%, 1000 hr. 10-20%; midflame windspeed 0-10 m.p.h.; flame length1-12’; rate of spread 1-140 chains per hour.

Treatment (Fire Management) Objectives:

Monitoring Type Variables: brush density, native perennial grass percent cover, seedling tree density (pinon & juniper).

1. Reduce pinon and juniper pole tree density where present by at least 40% within 5 years postburn
2. No increase in non-native herbaceous vegetation percent cover within 5 years postburn
3. No increase in bare ground percent cover within 5 years postburn

Additional Monitoring Type Variables of Interest: pole tree density (pinon & juniper), non-native herbaceous vegetation percent cover, bare ground percent cover

1. Prescriptions—NPS El Malpais National Monument

2. Prescribed Fire Burn Blocks for the El Malpais Conservation Area (BLM)—(Narrative)

3. Five-Year Prescribed Fire Map—El Malpais National Monument

(REF: Fire Management Plan, El Malpais NM 1992)

1. Joint Wildland Fire Use Decision Matrix

2. Wildland Fire Implementation Plan and Documentation (Sections I - VII)

*(BLM OPTIONAL)

The Wildland and Prescribed Fire Complexity Analysis provides a method to assess the complexity of both wildland and prescribed fires. The analysis incorporates an assigned numeric rating complexity value for specific complexity elements that are weighted in their contribution to overall complexity. The weighted value is multiplied times the numeric rating value to provide a value for that item. Then all values are added to generate the total complexity value. Breakpoint values are provided for low, moderate, and high complexity values.

The complexity analysis worksheet is accompanied by a guide to numeric values for each complexity element shown, provided on the following pages.

The "valid date(s)’ box is inclusive of those dates where the assessment remains valid, as indicated by the dated signature. When any decision elements change from "No" to "Yes", a new checklist must be completed for documentation purposes. A "Yes" response to any element on the Part 1checklist indicates that the selected appropriate management response is not accomplishing or will not accomplish desired objectives and that a new strategic alternative should be developed immediately through the use of a Wildland Fire Situation Analysis (WFSA).

The Periodic Fire Assessment, Part 2 is a process that must be completed periodically for all wildland fires managed for resource benefits that do not have a completed WFIP Stage III. For isolated ignitions in fuel-limited situations, Part 2 does not have to be completed. When completing Part 2 of this checklist, if the chart indicates that WFIP Stage III is needed, it must be prepared within 24 hours.

When units establish monitoring and assessment frequency, it may be appropriate to develop a "step-up" system based on fire size or levels of fire activity. Then, as an individual fire gets larger or becomes more active, the monitoring and assessment frequency can correspondingly increase. Conversely, as fire activity lessens and fire size increases become less common, monitoring and assessment can "step-down" and become less frequent. Units must identify standards and rationale for establishing assessment frequency, especially "step-up" and "step-down" actions. If fire size is used as a determinant, then past burning rates should be used to formulate standards. If fire activity is used, then levels of burning (acres per day, etc.) must be definable and justifiable.

Wildland Fire Situation Analysis (WFSA) is a decision-making process in which the Agency Administrator or representative describes the situation, establishes objectives and constraints for the management of the fire, compares multiple strategic wildland fire management alternatives, evaluates the expected effects of the alternatives, selects the preferred alternative, and documents the decision. The format and level of detail required is dependent on the specific incident and it’s complexity. The key is to document the decision.