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PRESCOTT NATIONAL FOREST

2011 Fire Management Plan

Updated by: /s/ Ed Paul Date: 3/21/2011

Reviewed by: /s/ Pete Gordon Date: 3/24/2011

2011 Prescott NF Fire Management Plan

Interagency Federal fire policy requires that every area with burnable vegetation must have a Fire Management Plan (FMP). This FMP provides information concerning the fire process for the Prescott NF and compiles guidance from existing sources such as but not limited to, the Prescott NF Land and Resource Management Plan (Forest Plan), national policy, and national and regional directives.

The potential consequences to firefighter and public safety and welfare, natural and cultural resources, and values to be protected help determine the management response to wildfire. Firefighter and public safety are the first consideration and are always the priority during every response to wildfire.

The following chapters and appendices discuss broad forest and specific Fire Management Unit (FMU) characteristics and guidance.

Chapter 1 introduces the area covered by the FMP, includes a map of the Prescott NF, addresses the agencies involved, and states why the forest is developing the FMP.

Chapter 2 establishes the link between higher-level planning documents, legislation, and policies and the actions described in FMP.

Chapter 3 articulates specific goals, objectives, standards, guidelines, and/or desired future condition(s), as established in the Forest Plan, which apply to all the forest’s FMUs and those that are unique to the forest’s individual FMUs.

iv

Chapter 1. Introduction

The Prescott NF is centrally located within the State of Arizona. It consists of approximately 1,263,000 acres of forests and grasslands managed as three separate Ranger Districts (RD). They are the Bradshaw RD, Chino Valley RD and Verde RD. Spatially, the Prescott NF is split almost in half separated by lands managed by other federal and state agencies and large areas of private ownership. The two halves are known as the West Zone and the East Zone. The area between the zones is a well-developed population center that includes cities, towns and communities of Prescott, Prescott Valley, Dewey/Humbolt, Chino Valley, Paulden, etc. A well-developed population center is also located along the eastern edge of the Prescott NF and along the Verde River. This area is known as the Verde Valley and includes Camp Verde, Cottonwood, Clarkdale, etc. Within the physical boundaries of the Prescott NF, numerous communities and small population centers exist. These are the product of patented mining claims becoming subdivided and developed. These include Crown King, Walker, Groom Creek, Highland Pines, Deering Park, etc.

The Prescott NF developed this FMP as a decision support tool to help fire personnel and decision makers determine the response to an unplanned ignition. FMPs do not make decisions. Instead, they provide information, organized by FMUs, which provides a finer scale summarization of information than is possible at the forest level. These descriptions bring specific detail about the identifiable areas on the ground. FMPs are not static documents. They will evolve and be revised as conditions change on the ground, and as modifications are made to the Forest Plan.

The mission of the Prescott National Forest is to provide multiple use and sustained yield of goods and services in a way that maximizes long-term net public benefits consistent with resource integration, environmental quality and management considerations. The Desired Condition is to achieve a management situation that can respond to local or national demands for wood products, livestock production, water yield and a wide mix of recreation opportunities, including wildlife-related uses. The goal is to produce these outputs and opportunities on a sustained basis while maintaining air, soil and water resources at or above minimum local, State or Federal standards. Levels of output and use opportunities will be adjusted so they are within long-term supply potentials and to ensure that impacts on heritage, wildlife, and vegetation resources can be mitigated to protect these resources for future management options. (Forest Plan, page 11).

The Prescott NF provides for a wide variety of public uses including recreation (a wide variety of opportunities), grazing, wood products, minerals excavation, location for utility corridors and electronic sites, etc. As population centers increase and expand, including the greater Phoenix metropolis, the Prescott NF is becoming an urban forest with great emphasis on recreational opportunities and responsibilities that include maintaining healthy forest ecosystems that support management goals of provide for public and firefighter safety.

Page 2 of 18

Chapter 2. Policy, Land Management Planning, and Partnerships

Regulations and policy in the following documents guide the fire management as outlined in this FMP.

2.1. National and Regional Fire Management Policy

Forest Service policy and direction that are relevant to this plan include:

· Review and Update of the 1995 Federal Wildland Fire Management Policy January 2001. http://www.nwcg.gov/branches/ppm/fpc/archives/fire_policy/history/index.htm

· National Fire Plan.

· Forest Service Manual 5100.

· Guidance for Implementation of Federal Wildland Fire Management Policy (February 13, 2009). http://www.nifc.gov/policies/guidance/GIFWFMP.pdf

· Interagency Standards for Fire and Aviation Operations (Interagency Guides Redbook 2011). http://www.nifc.gov/policies/red_book.htm

· United States Forest Service Fire Suppression Doctrine, Jan 2006. http://www.fs.fed.us/fire/doctrine/index.html

· Arizona Revised Statute, Title 18. Environmental Quality, Chapter 2, Dept. of Environmental Quality – Air Pollution Control, Article 15. Forest and Range Management Burns, Section R18-2-1507. Prescribed Burn Accomplishment; Wildfire Reporting. http://www.azsos.gov/public_services/Title_18/18-02.htm

2.2. Prescott NF Land and Resource Management Plan (Forest Plan) and Other Local Guidance

· Prescott NF Land and Resource Management Plan and Record of Decision, 1986 Forest Plan with all Amendments - Version 1.1, Republished 12/2004. All references in this document are applicable per direction provided in the 2006 Amendment #16 – “Wildland Fire Use Amendment”. http://www.fs.fed.us/r3/prescott/plan-revision/forestplan.shtml

· Prescott NF, 2005 NFMAS Analysis, January 2003.

· Yavapai Communities Wildfire Protection Plan. http://www.azsf.az.gov/UserFiles/PDF/YavapaiCWPP_%20v2.pdf

2.3. Partnership

The Forest Plan was developed with extensive public involvement and collaboration (Forest Plan Environmental Impact Statement, pg 4-6). Numerous Federal, state and local agencies participated, as did Native American Tribes. Coordination with these groups is an ongoing and continuous process in planning and implementation of fire management activities.

The Fire Management Community includes adjacent cities, towns, fire districts, fire departments, isolated parcels of private land, Arizona State land, BLM land and three neighboring National Forests. Interaction with these various entities triggers involvement with Yavapai County, various state agencies and local, state and national elected officials. Collaboration may involve only one rural Fire Department for a local fuels project or it may involve the entire Fire Management Community during severe years for preparedness and prevention activities. Many of the communities in Yavapai County, including the Prescott NF are addressed in an approved wildfire protection plan http://www.pawuic.org/.

Chapter 3 – Fire Management Unit Descriptions

The map below displays the location and designation for each of the Fire Management Units on the Prescott NF.

Page 5 of 18

The primary purpose of developing FMUs in fire management planning is to assist in organizing information in complex landscapes. FMUs divide the landscape into smaller geographic areas to focus on safety considerations, physical, biological, social characteristics and to frame associated planning guidance based on these characteristics.

FMUs on the Prescott NF are delineated based on potential management actions and resource objectives. Current Forest Plan direction allows suppression actions in all FMUs. These include wildland urban interface (WUI), non-WUI, and Wilderness. It also allows the option of managing unplanned, natural wildfires to achieve resource objectives within non-WUI and Wilderness FMUs. Response to wildfire is based on Forest Plan goals and objectives for each of these FMUs.

The following information, including the summaries of fuels conditions, weather and burning patterns, and other conditions in specific FMUs, helps determine the management response to an unplanned ignition and provides a quick reference to the strategic goals in the Forest Plan.

3.1 Fire Management Considerations Applicable to All Forest Fire Management Units

3.1.1 Prescott NF - Forest Plan Guidance[1]

· Desired Conditions: The forest is managed with a primary emphasis on healthy, robust environments with productive soils, clean air and water, and diverse populations of flora and fauna. (Forest Plan, page 11).

· Goals: Provide for fire management support services necessary to sustain resource yields while protecting improvements and investments, and providing for public safety. In as much as possible, return fire to its natural role in the ecosystem. (Forest Plan, page 14).

· Objectives: The fire interval, behavior and effects associated with the historic fire regime is returned to the landscape where feasible. When and where appropriate, ecosystem objectives are met through the use of prescribed fire and wildfires used for resource benefits. (Forest Plan, page 14).

· Standards and Guidelines: Wildfire (Page 51)

o Firefighter and public safety shall be the first priority in all Fire Management activities.

o All human-caused fires (unplanned) shall be suppressed using the appropriate response.

o Wildfire management responses shall minimize costs of suppression, resource impacts, and risks to life and property.

o Fire prevention messages should emphasize the difference between unwanted human-caused wildfires, lightning-caused wildfires managed for resource benefits, and prescribed fires.

o Prevention and preparedness activities should be designed and implemented following a comprehensive analysis of fire occurrence, resistance to control, values at risk and other factors.

o The management response for each wildfire will vary across the Forest and should include the full spectrum of options from aggressive initial attack to managing fires to accomplish resource objectives.

o For all management units except WUI (see map, page 4), lightning-caused wildfire should be managed to restore fires natural role in maintaining a healthy, diverse and resilient ecosystem resistant to natural disturbances within the areas specified in the Forest Plan (Appendix L). See map on page 12 of this document for locations of management strategies.

o Standards and guidelines for management of the Mexican spotted owl are found in the Forest Plan (page 141, Appendix F). These include:

§ “In pine/oak forests, retain existing large oaks and promote growth of additional large oaks, encourage prescribed and prescribed natural fire to reduce hazardous fuel accumulation.”

§ … “maintain potential for beneficial fire while inhibiting potential destructive fire” …

§ “Apply ecosystem approaches to manage for landscape diversity mimicking natural disturbance patterns, incorporating natural variation in stand conditions and retaining special features such as snags and large trees, utilizing appropriate fires and retention of existing old growth in accordance with Forest Plan old growth standards and guidelines.”

· Other Guidance:

o Adhere to the Guidelines for Aerial Delivery of Retardant or Foam near Waterways (2000). All retardant application locations will be documented and mapped. Reporting of known accidents, spills, and exceptions to the above referenced guidelines and the non-waterway habitats of the 45 T&E species identified in the FWS Biological Opinion must be reported. (5160/2670 – WO letter dated March 18, 2009).

o Adhere to the technical guidelines for fire operations associated with Preventing Spread of Aquatic Invasive Organisms Common to the Southwestern Region. (2670/5100/2150/2080 – R3 Regional Forester letter dated December 11, 2008).

3.1.2 Physical Characteristics that Apply to All Fire Management Units

· Weather patterns influencing fire behavior and historical weather analysis: cool moist winters, wet springs and hot summers is the typical historic weather pattern for the forest. The extensive drought since the mid-1990’s has resulted in relatively dry winters, little spring time moisture, and delayed onset of the summer rains (monsoon). The ten year average annual precipitation total at the Verde remote automated weather station (RAWS) is 11”, the Crown King RAWS is 23”, and the Iron Springs RAWS 16”. Most large wildfires on the Forest have occurred in late June or early July during lightning events. Over the past decade, large wildfires have been increasing in frequency with a Type I, Type II or Type III incident occurring on the Forest every year since 2002 (with the exception of 2010).

· Fire Season Determination: fuel conditions are typically dry enough to staff prevention, detection, and suppression resources by April 15. On average, the threat of large wildfires is over by the middle of August; however, seasonal preparedness resources are staffed until after lightning season which traditionally ends in September.

· Historic Energy Release Components: the graphs on the next page depict the average, maximum and minimum Energy Release Components (ERC) for the East and West Zones of the Prescott NF.

3.1.3 Wildfire Management Options

3.1.3.1 As outlined in the Forest Plan, the suitable strategic response for each wildfire will vary across the Forest and will include a full spectrum of options from aggressive suppression based initial attack to managing fire to accomplish resource objectives. Initial action on human-caused wildfires will be to suppress the fire at the lowest cost with the fewest negative consequences with respect to firefighter and public safety. In approved Fire Management Units (FMU), unplanned lightning-caused wildfires may be managed for resource benefit objectives. The Forest Plan also includes the use of prescribed fire as well as mechanical fuels treatments in appropriate areas.

The following management options are outlined in the Forest Plan:

1. Wildland Fire Suppression

2. Use of Wildland Fire

3. Prescribed Fire

4. Non-Fire Applications

The chart below depicts the process to be considered when a wildland fire ignition occurs, regardless of source. Specific options relative to an unplanned wildfire ignition depend on FMU objectives and available options as outlined in the Forest Plan. Note: L/RMP refers to the Forest Plan.

As appropriate and in approved areas, a natural unplanned ignition may be concurrently managed for one or more objectives, and objectives can change as the fire moves across the landscape.Management decisions will be documented using the Wildland Fire Decision Support System (WFDSS).

The current policy clearly states that wildfire analysis will carefully consider the long-term benefits in relation to risks both in the short and long term. “Fire, as a critical natural process, will be integrated into land and resource management plans and activities on a landscape scale, and across agency boundaries. Response to a wildfire is based on ecological, social, and legal consequences of fire. The circumstances under which a fire occurs, and the likely consequences on firefighter and public safety and welfare, natural and cultural resources, and values to be protected dictate the appropriate management response to fire.”

3.1.3.2 Forest Plan options available for management of wildfire

· All wildfires will be subject to an initial attack response. This response will include evaluation of the current fire situation, determination of probable fire cause, available management options, estimate of potential fire spread, jurisdictional ownership, and incident complexity. A strategic response will be implemented in all cases (see chart, page 8). All resources should use the Prescott NF Initial Attack Incident Commander’s Checklist during an initial attack response.

· All human-caused wildfires will be suppressed. Public and firefighter safety and potential damage to natural resources and private property are the primary criteria for determining the strategic response to wildfire. Initial action on human-caused wildfire will be to suppress the fire at lowest cost with the fewest negative consequences with respect to firefighter and public safety. If the initial action is unsuccessful, a Decision Analysis Report (DAR) will be completed in the Wildland Fire Decision Support System (WFDSS) to determine the strategic response.

· Implementation Procedures. Managers will use the WFDSS to guide and document wildfire management decisions. A Complexity Analysis and Risk Management Analysis will be conducted prior to engaging any fire. If a fire is confirmed as a natural start and is located in an FMU which allows the use of fire for resource benefit objectives, the District Duty Officer in consultation with the Forest Duty Officer and with approval from the Line Officer of jurisdiction will determine, authorize, and document the response decision.

3.2 Wildfire Management Snapshot Applicable to All Forest Fire Management Units

3.2.1 Radio Frequency: The following FM frequencies are authorized by the Federal Communications Commission for official use:

· Common Name RX TX Tone

Admin 168.175 168.175

Admin Repeater 168.175 168.775 User Select

Fire Net 172.225 172.225

Fire Net Repeater 172.225 168.675 User Select

NIFC TAC 1 168.050 168.050

NIFC TAC 2 168.200 168.200

NIFC TAC 3 168.600 168.600

Air to Ground 1 166.675 166.675

Air to Ground 2 169.125 169.125

Nat’l Flight Following 168.650 168.650 110.9

Air Guard 168.625 168.625 110.9

· Repeaters:

Name Tone Name Tone

Union 103.5 Mingus 110.9

Bill Williams 123.0 Towers 131.8

Squaw 136.5 Hyde 146.2

Wildflower 156.7

·

The following AM frequencies are authorized by the Federal Communications Commission for official use:

Common Name Freq

Air to Air 135.675 or 126.325

National Air Tanker Base 123.975

3.2.2 Fire Behavior Indicator: ERC (90th and 97th percentiles).

3.2.3 NFDRS Weather Station:

3.3.1.3.3 Control Problems and Dominate Topographical Features.

Ponderosa pine with a chaparral understory is problematic and often demonstrates a rapid buildup and transition from a surface fire to a crown fire. In this same fuel type are areas with a complex land ownership pattern and poor access. The southern Bradshaw Mountains have the highest percentage of large wildfires on the forest due to poor to no ground access. Many communities and structures lie in and/or adjacent to problematic control features.

3.3.1.3.4 Other Elements of the Fire Environment Affecting Management.

· Well over 10,000 residential and business structures are within or immediately adjacent to this FMU. The rapid growth in Yavapai County has prevented an accurate assessment of the actual number of structures within or adjacent to Forest lands. Many newer structures are built with fire safe material and are in areas where fuels have been reduced due to required landscaping. These areas also have the best access. Older communities have poor access with older structures consisting mostly of wood siding and are often surrounded by dense vegetation. More isolated areas also have expensive homes/cabins but with poor access, virtually no defensible space and no local fire protection. Many residents in the FMU are very vocal regarding fuel treatment priorities, prevention activities, and fire suppression operations.

· There are numerous individuals residing in the area that are either smoke or chemically sensitive, have severe allergies, or pulmonary disorders. Prescribed fire operations are often hindered in size and duration to avoid impacts to these individuals. Complaints about smoke start long before National Ambient Air Quality Standards (NAAQS) are reached. Advanced notification of burns, moving projects into late summer/early fall, and burning larger areas but less frequently are some of the techniques the Forest uses to reduce smoke impacts.

3.3.2 B. FMU – NON-WUI (Wildland Fire Use)

3.3.2.1 FMU Snap Shot and Characteristics

· General Risk Category: Moderate

· Vegetation types include all of those found on the Prescott. These include ponderosa pine, pine with a chaparral understory, mixed conifer, aspen, chaparral, pinyon/juniper/oak woodlands, desert scrub and desert grasslands.

· Soils are coarse textured; usually shallow with a moderate to severe erosion hazard rating.

· There is little dependable water in this entire FMU with the exception of stock tanks during wetter years.

· Air quality is generally good to excellent most of the time. Wildland fires can affect adjacent communities. Most communities have residents who are smoke or chemically sensitive, or have other pulmonary disorders.

· Historic and pre-historic sites are common throughout the forest, however most are small and easily avoided.

· There are numerous wildlife, plant and noxious weed species addressed in project level planning and implementation. The northern goshawk has nesting/roosting/foraging requirements that may affect fire management operations.

· This FMU contains isolated parcels of private land with structures but does border substantial holdings of private rangeland.

· Human-caused fires are less frequent in this FMU because residential and recreational use is light. For the period from 1970-2008, there were 275 human-caused and 1086 lightning fires.

3.3.2.2 FMU Guidance

All of the Desired Conditions, Goals and Objectives, and Standards and Guidelines discussed above in “3.1.1” are applicable to this FMU. This FMU emphasizes the following:

· All human-caused wildfires will be suppressed. (Forest Plan, page 51)

· Natural ignitions may be suppressed or managed under approved conditions to accomplish resource objectives; as authorized by the Line Officer of jurisdiction. (Forest Plan, page 51-1)

3.3.2.3 FMU Fire Environment

3.3.2.3.1 Fuel Conditions.

· The problem fuel type in this FMU is chaparral located in the central and south Bradshaw Mountains. Most of this area has not burned since the 1940’s and 50’s with the exception of the 1972 Battle Fire. Generally, chaparral must be 20 years or older before it will carry fire and this area has certainly exceeded that timeframe. The natural increases in dead component are being accelerated by drought.

· The Pinion-Juniper Woodlands located on the northern half of the forest are not viewed as a significant wildfire threat. Minimal suppression action will be taken on the majority of these fires.

· The grasslands of the southeastern portion of the forest typically do not support large wildfires due to grazing and frequent drought. However, wet cycles can produce significant grass crops and significant wildfires (the Cave Creek Fire of 2005 is a good example of a fuel driven high desert fire).

3.3.2.3.2 Fire Regime Alteration.

Ponderosa pine has the most altered fire regime of any vegetation type on the Forest. Local fire history studies estimate the fire return interval to be 3-10 years, however fire has been excluded in this type for decades. The chaparral under story in ponderosa pine is the result of fire exclusion in otherwise pure ponderosa pine stands and shown below as Condition Class 3. Chaparral is shown as Condition Class 2 because most of the pure chaparral, on a landscape scale, has burned at least once within the last 75 years.

Some studies indicate that areas of Juniper Woodland that are on good soils were once a grass or juniper savannah with frequent fires similar to ponderosa pine. It is classed as Fire Regime I. This ecosystem has far exceeded its natural variability that was once sustained by wildfire, and is altered more extensively as a functioning ecosystem than ponderosa pine.

3.3.2.3.3 Control Problems and Dominate Topographical Features.

Dense, over-mature chaparral with poor ground access in the central and southern Bradshaw Mountains is the most significant control problem in this FMU.

3.3.2.3.4 Other Elements of the Fire Environment Affecting Management.

There are no distinct elements in this FMU.

3.3.3

C. FMU – WILDERNESS (Wildland Fire Use)

3.3.3.1 FMU Snap Shot and Characteristics

· General Risk Category: Moderate

· Vegetation types include ponderosa pine and mixed conifer, pine with a chaparral under story, chaparral, pinyon/juniper/oak woodland and grasslands.

· Soils are coarse textured; usually shallow with a moderate to severe erosion hazard rating.

· Drainages such as Apache Creek, Poland Creek and Sycamore Creeks (one each in Pine Mountain and Sycamore) may provide sufficient water for limited fire management activities.

· Air quality is generally good to excellent most of the time. Wildland fires can affect adjacent communities. Most communities have residents who are smoke or chemically sensitive, or have other pulmonary disorders.

· Historic and pre-historic sites are common throughout the forest, however most are small and easily avoided.

· Historic and pre-historic sites are common throughout the forest; however, most are small and are easily avoided.

· Included in this FMU are the following Wildernesses: Cedar Bench, Pine Mountain, Woodchute, Castle Creek, Granite Mountain, Apache Creek and Juniper Mesa.

· For the period 1970-2008 there were 31 human-caused and 222 lightning-caused wildfires.

3.3.3.2 FMU Guidance

· All of the Desired Conditions, Goals and Objectives, and Standards and Guidelines discussed above in “3.1.1” are applicable to this FMU. This FMU emphasizes the following: (Forest Plan, Standards and Guidelines, page 69):

o Wildfires and prescribed fires will be implemented to meet specific wilderness objectives.

o Minimum Impact Suppression Tactics (MIST) should be used to suppress wildfires within Wilderness.

o The use of helicopters, power saws, small motorized pumps and the aerial delivery of personnel, retardants and supplies should be authorized by the incident commander(s) or as otherwise stipulated within a Decision Analysis Report or “Delegation of Authority” signed by the line officer with jurisdiction. (Note: Within wilderness areas, tractor use can only be approved by the Regional Forester. The Forest Supervisor may authorize use of chainsaws, pumps and helicopters for emergency fire management operations per Forest Service Manual 2326.04c).

· Additional Guidance.

o A Resource Advisor should be assigned to all fires occurring within wilderness areas. All of the wilderness areas on the Prescott NF have potential multi-jurisdictional issues and/or concerns. Ensure adequate and appropriate fire management coordination occurs between all involved agencies/groups.

o Management actions within wilderness areas are to be conducted in a manner compatible with overall wilderness management objectives.

o Burned Area Emergency Rehabilitation (BAER) is only allowed in wilderness if (1) necessary to prevent an unnatural loss of the wilderness resource or (2) to protect life, property, and other resource values outside of wilderness.

o When and where appropriate, attempt to locate helispots and spike camps outside of wilderness areas.

3.3.3.3 FMU Fire Environment

3.3.3.3.1 Fuel Conditions.

Fuels are highly variable among the seven wilderness areas. Conditions range from dense chaparral and beetle-killed pine in Castle Creek Wilderness to more open grown pine and juniper stands on Juniper Mesa and Cedar Bench Wilderness.

3.3.3.3.2 Fire Regime Alteration.

Ponderosa pine has the most altered fire regime of any vegetation on the Forest. Local fire history studies estimate the fire return interval to be 3-10 years; however, fire has been excluded in this type for decades. The chaparral under story in ponderosa pine is the result of fire exclusion in otherwise pure ponderosa pine stands and is therefore shown below as Condition Class 3. Chaparral is shown as Condition Class 2 because most of the pure chaparral, on a landscape scale, has burned at least once within the last 75 years.

Some studies indicate that areas of Juniper Woodland that are on good soils were once a grass or juniper savannah with frequent fires similar to ponderosa pine. It is classed as Fire Regime I. This ecosystem has far exceeded its natural variability that was once sustained by wildfire, and is altered more extensively as a functioning ecosystem than ponderosa pine.

3.3.3.3.3 Control Problems and Dominate Topographical Features.

The Castle Creek Wilderness contains the Poland Creek drainage which divides the area east and west, and has long running steep slopes with dense chaparral.

3.3.3.3.4 Other Elements of the Fire Environment Affecting Management.

Granite Mountain Wilderness and Castle Creek Wilderness are immediately adjacent to the Wildland Urban Interface (WUI). Potential threats to the WUI and the related safety concerns are key criteria in determining eligibility for using wildfire to meet resource objectives.

Page 18 of 18

[1] Prescott NF Land and Resource Management Plan and Record of Decision, 1986 Forest Plan with all Amendments - Version 1.1, Republished 12/2004. This includes the August 2007 Amendment #16 – “Wildland Fire Use Amendment”.