PFOG Draft Outline Format

PRESCRIBED FIRE OPERATIONS GUIDE (PFOG) SEQUOIA AND KINGS CANYON NATIONAL PARKS 1 TABLE OF CONTENTS Page I. FMO Memo 3 II. Introduction 4 III. SEKI Prescribed Burn Standard Operating Procedures (SOPs) 5 Required For All Burns IV. Human Factors and the Prescribed Fire Operations Guide 6 V. List of Issues & Standard Operating Guidelines (SOGs) A. Issue #1 – Leader’s Intent 7 B. Issue #2 – Pre-Season Training 8 C. Issue #3 – Burn Unit Layout 8 D. Issue #4 – Medical Planning 9 E. Issue #5 – Smoke and Traffic Control Planning 10 F. Issue #6 – Snags and Hazardous Trees 11 G. Issue #7 – Burning Under or Around Power and Phone Lines 12 H. Issue #8 – Archeological Clearance 13 I. Issue #9 – Trainer/Trainee Model 14 J. Issue #10 – Spring Grass Burning 14 K. Issue #11 – Sudden Burn Windows Opening and Closing 16 L. Issue #12 – High Energy Slopes 17 M. Issue #13 – Aerial Ignition 18 N. Issue #14 – Trees of Special Interest 20 O. Issue #15 – Pile Burning 21 P. Issue #16 – After Action Reviews (AARs) 24 VI. Conclusion 25 A. PFOG Task Group Members 25 B. Glossary 26 C. References 28 2 June 6, 2013 MEMORANDUM OF COMMANDER’S INTENT To: All Red Carded Staff CC: Chief Ranger, SEKI From: Fire Management Officer, SEKI Subject: Implementation of the Prescribed Fire Operations Guide, SEKI The fire management program is committed to building and maintaining a High Reliability Organization. One of the hallmarks of an HRO is a pre-occupation with failure and an organizational structure attuned to listening for “weak signals.” These “Lessons Learned” lead the development of best practices that improve our safety and enhance our operational performance. SEKI FMO has updated the 2007 Prescribed Fire Operations Guide (PFOG) guide to reflect additional learning that has occurred over the past several years. It is my intention that all levels of the fire organization use this guide to direct prescribed fire planning and operations. The PFOG contains over 10 years of organizational and individual learning. Let’s use to PFOG to enhance our performance and change our behaviors. "A lesson is learned when we change our behavior". The PFOG is an excellent resource to assist in preventing errors of the past from continuing into the future. Unless so stated in the guide, the PFOG is not policy and does not abrogate our individual responsibility and accountability. While the PFOG should inform decision making, it is not to serve as a substitute for good judgment and sound operational decisions. All burn bosses operating in the park, whether or not they are employees of SEKI, are expected to be familiar with the document. Similarly, all SEKI fire personnel filling overhead and leadership positions should also be familiar with document. Sincerely, David M. Allen 3 II. INTRODUCTION A. History Since its inception in the 1960s, prescribed burning at Sequoia and Kings Canyon National Parks (SEKI) has historically been highly productive. Numerous lessons learned from both successes and unintended outcomes have provided unique opportunities for current and future fire managers to gain knowledge. The fire management program at Sequoia and Kings Canyon National Parks is committed to building and maintaining a High Reliability Organization. One of the hallmarks of an HRO is a pre-occupation with failure and an organizational structure attuned to listening for “weak signals.” From weak signals, lessons learned are developed which lead to the formulation of best practices that improve our safety and our operational efficiency. In fall 2006, the parks experienced some minor unintended outcomes on prescribed burn operations. In response, Fire Management Officer David Bartlett commissioned a task group to analyze past lessons learned in the parks’ prescribed fire program and compile a guide of best practices for prescribed fire planning and implementation. Of equal importance was to capture these lessons before they would be lost to history. B. Purpose This Guide was developed for Burn Bosses, Firing Bosses, Holding Bosses and Fire Managers with the goal of creating a more standardized, efficient, and safe operation/organization, while still allowing for flexibility in the execution of prescribed burns. It was not intended to create new policy or another checklist of items that a Burn Boss must do. Section III has standard operating procedures (SOPs) required on all SEKI prescribed burns. Included in Section V are several recommended standard operating guidelines (SOGs) which Burn Bosses may implement as best practices. This is not a comprehensive guide. Each prescribed burn offers an opportunity to learn. Significant lessons captured in the After Action Review (AAR) process should be discussed at the Annual Prescribed Fire Operations Review. It is recommended that this document be reviewed at that time. At a minimum, lessons learned should be added to this document on a biennial basis. C. FUELS MANAGEMENT EXPECTATION All SEKI Fire Management employees who are qualified for burn overhead positions (e.g. – Burn Boss, Firing Boss, or Holding Boss at the appropriate qualification), should be able to fill that position similar to any other fire management assignment. This includes proper readiness in case of “sudden burn windows” or unplanned substitution for an individual in a primary overhead position who is unable to attend the burn. Burn Bosses should try and identify their overhead team as early as possible and provide ample time for unit recons. It is the responsibility of overhead qualified employees to be as familiar as possible with all the potential burn units. 4 III. SEKI PRESCRIBED BURN STANDARD OPERATING PROCEDURES (SOP’S) REQUIRED FOR ALL BURNS A. Required operational overhead positions on all Type 1 and 2 burns. 1. Prescribed Burn Boss 2. Firing Boss 3. Holding Boss(es) B. The Prescribed Burn Boss will work for the Duty Officer. C. The Prescribed Fire Manager position will be filled at the discretion of the Park Fire Management Officer and Duty Officer in coordination with the Burn Boss. D. The Prescribed Fire Manager will work for the Duty Officer. E. The Prescribed Fire Manager and the Duty Officer can be the same individual at the discretion of the Park Fire Management Officer and Duty Officer in coordination with the Burn Boss. F. If the position is staffed, the Prescribed Fire Manager will be the primary smoke call participant. In the event the Prescribed Fire Manager position is determined to not be needed, the Duty Officer or designee will be the primary smoke call participant. G. There will be only one Firing Boss on each prescribed burn. The Firing Boss will work directly for the Burn Boss. When there is only one Firing Team, the Firing Boss may directly supervise that team without using a Firing Team Leader. CAUTION: WHEN USING AERIAL IGNITION, ANY FIRING TEAM LEADER IN THE HELICOPTER MUST BE QUALIFIED AS A FIRING BOSS PER THE INTERAGENCY AERIAL IGNITION GUIDE. (SEE ISSUE #13 BELOW.) CAUTION: THERE IS THE POSSIBILITY OF FIRING TEAM MEMBERS RECEIVING TWO SETS OF POTENTIALLY CONFLICTING INSTRUCTIONS FROM THE FIRING BOSS, FIRING TEAM LEADER, OR THE APPROPRIATE HOLDING BOSS. H. While not a required SOP, the use of Firing Team Leaders is highly recommended when there is more than one Firing Team. All aerial Firing Team Leaders will work for the Firing Boss. I. There will only be one overhead (Burn Boss, Firing Boss, or Holding Boss) trainee per burn. J. The Fire Information Officer (FIO) will work for the Burn Boss. The Burn Boss is responsible for working with the Fire Education Specialist to ensure the FIO 5 position is staffed. This includes having a back-up plan in case the primary FIO is unavailable. K. Input from the FIO will be incorporated into the planning process at the earliest possible time. The Burn Boss will work with the FIO to ensure the relevant requirements of the burn plan, such as notifications, are met. L. A copy of the burn plan should be on scene during prescribed burn operations. NOTE: THE 2008 INTERAGENCY PRESCRIBED FIRE PLANNING AND IMPLEMENTATION PROCEDURES GUIDE (PAGE 13) REQUIRES PORTIONS OF THE PLAN BE TAKEN IN THE FIELD FOR COMPLETING THE BRIEFING AND SAFE PROJECT IMPLEMENTATION. M. It is the responsibility of the Burn Boss to coordinate with the appropriate Duty Officer to ensure there are adequate long term patrols after the ignition phase. N. The Burn Boss will be responsible for declaring a burn officially out unless another arrangement is made. CAUTION: ON TIMBER UNITS, BURN BOSSES MUST BE 100% SURE THAT A BURN IS ACTUALLY OUT BEFORE OFFICIALLY DECLARING IT SO. IT IS RECOMMENDED WAITING UNTIL AFTER THE FIRST AUTUMN RAIN BEFORE DOING SO. IV. HUMAN FACTORS AND THE PRESCRIBED FIRE OPERATIONS GUIDE Human beings are as complex and dynamic as the weather. Our actions are not always logical or predictable. The ways in which we process information and interact with our world can have as profound an impact on a prescribed burn as the weather conditions. These are known as ‘human factors’. They include barriers to situation awareness (stress, fatigue, distraction, etc), hazardous attitudes, and how we make decisions, to name a few. They exist on every fire assignment. And like the weather, they require consideration, continuous monitoring and adaptation as changes occur. In the early 1990s, pioneers such as Jim Cook, Karl Weick, and Judith Orasanu began investigating the impact of human factors on fire operations. Since then, studies have attempted to clearly define and categorize these factors. As we understand more about them, we can better recognize and handle their presence in a reliable, consistent manner. For instance, most firefighters are now taught about the dangers of being ‘mission driven’, that is, getting so focused on completing the task at hand that corners are cut and safety is compromised.

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