Whitewater-Baldy Complex Fire Burned Area Emergency Response Process Facilitated Learning Analysis July • 2013 Gila National Forest Whitewater-Baldy Complex BAER Process • Facilitated Learning Analysis 1 Photos by KC Shedden Severe burn effects in the aftermath of the Whitewater-Baldy Complex Fire. Contents 1. Leader’s Intent…...…………………………………………………..… 3 2. Background…….………………………………….……….….……..… 4 3. BAER Team Chronology…………………………………….….…..… 6 4. Contracting……………………..….…..…………………………….… 12 A. Contracting Findings………………………………………………… 12 B. Contracting Recommendations……………………………………… 14 5. Findings and General Lessons Learned…………..…..….………….… 17 6. Recommendations………………………….……………..…...……..… 21 7. Commendations………………………….……………..….…….…..… 25 8. Facilitated Learning Analysis Team……………………….………..… 26 Whitewater-Baldy Complex BAER Process • Facilitated Learning Analysis 2 1. Leader’s Intent On February 26, 2013, Kelly M. Russell, Forest Supervisor of the Gila National Forest, requested that a Facilitated Learning Analysis (FLA) be conducted to analyze and report on the Whitewater-Baldy Burned Area Emergency Response (BAER) process that occurred on the Gila National Forest in the spring and summer of 2012. Russell named Bea Day, Forest Fire Management Officer, Cibola National Forest and Grasslands, to serve as the FLA’s Team Leader—with full authority to execute and complete an FLA following the procedures described in the 2012 Facilitated Learning Analysis Implementation Guide. In her Delegation of Authority, Russell requested the following to be included in the FLA report: A thorough description of issues encountered during the BAER assessment and implementation process; Areas of potential improvement to the BAER process, and Recommendations at the Forest, Regional or National level pertaining to the BAER process and/or policy. In addition, Forest Supervisor Russell also requested that a synopsis of the lessons learned that occurred during the Whitewater -Baldy BAER effort be addressed in the FLA report. Whitewater-Baldy Complex BAER Process • Facilitated Learning Analysis 3 2. Background Whitewater-Baldy Complex BAER Team Purpose A Burned Area Emergency Response (BAER) Team is an interdisciplinary group of specialists whose job is to identify and assess values-at-risk from a fire’s “after effects”—such as erosion or flooding. The Whitewater-Baldy Complex BAER Team was composed of specialists in various fields, including: hydrologists, soil scientists, wildlife biologists, geologists, ecologists, suppression team liaison, engineers, cultural resources specialists, and geographic information specialists. From June 2-18, 2012, the team conducted field surveys, modeling and analysis of data, and prepared reports for the emergency assessment of post-fire resource conditions. The purpose of the team’s emergency report was to: Assess values-at-risk on the Gila National Forest and surrounding areas from the Whitewater- Photo by Kari Greer The Whitewater-Baldy Complex Fire on June 2, 2012. Baldy Complex fire, and Submit a funding request to In May and June 2012, the Whitewater-Baldy Complex secure money for implementing Fire burned approximately 450 square miles across four treatments that could potentially ranger districts on the Gila National Forest. High or lessen threats to life, property, and resources from indirect fire moderate burn severity encompassed 70,000 acres— effects such as flooding and representing 26 percent of the fire’s total burned area. debris flows. The fire started as two separate lightning strike fires— one near Mogollon Baldy and the other located in the headwaters of Whitewater Creek in the Gila Wilderness east of Glenwood, New Mexico. On May 23, these two fires—exhibiting extreme fire behavior—joined to form the Whitewater-Baldy Complex. The fire severely burned a large tract of land across the Gila National Forest and Gila Wilderness, including the headwaters of Whitewater Creek, Mineral Creek, and Gilita Creek— that—respectively—drain directly into the communities of Glenwood, Alma, and Willow Creek. Whitewater-Baldy Complex BAER Process • Facilitated Learning Analysis 4 Photo by Gila National Forest The Whitewater-Baldy Complex Fire severely burned a large tract of land across the Gila National Forest and Gila Wilderness. All of these population centers are situated in the floodplains of drainages affected by the Whitewater-Baldy Complex Fire. The fire eliminated much of the vegetation, duff and soil that once served to slow and hold water. Steep slopes further aggravated the situation. BAER Team Assembled As of June 17, 2012, the Whitewater-Baldy Complex Fire was 75 percent contained and had burned more than 290,000 acres. As the fire suppression team worked to contain the fire, the Burned Area Emergency Response (BAER) Team was assembled to assess the fire’s severity as well as threats to life and property and to the critical natural and cultural resources due to the fire or post- fire consequences. Photo by Kari Greer The BAER Team was to then determine and More than 290,000 acres burned on the Whitewater- Baldy Complex Fire. recommend the response actions to protect those values at risk. Whitewater-Baldy Complex BAER Process • Facilitated Learning Analysis 5 3. BAER Team Chronology Impending Monsoon Season Challenges BAER Team Timing In New Mexico and Arizona, the summer monsoons typically start in mid-July. Therefore, the Gila National Forest managers knew that the timing of the Whitewater-Baldy Complex Fire left a small window of opportunity for implementing preventive post-fire actions before these summer monsoons began. They realized it would be a challenge to assess and ultimately get treatments in place before the onset of the monsoons. The Gila National Forest BAER Coordinator, a veteran BAER member, knew that this fire had caused significant damage at the higher elevations—in spruce and fir stands—and that much of the headwaters of critical streams had severely burned. The Forest BAER Coordinator realized that the BAER response would most likely be a very difficult and costly endeavor. In addition, as the days and weeks passed, many Forest personnel were fatigued from being involved in suppression and the BAER assessment and implementation. Stress and fatigue became a common issue with everyone involved. Whitewater-Baldy BAER Timeline Assessment Phase May 25, 2012 BAER Assessment Team Leader Assigned The Forest Supervisor acknowledges that a BAER assessment must be completed. Manual direction stipulates that fires over 500 acres must be assessed, thus delegates a BAER Team Leader for the assessment process. Due to the complexity of the fire—represented by the percentage of affected communities downstream and other values-at-risk—the Forest Supervisor also agreed to an assistant, or co-team leader. At that point, the Assessment Team Leader calls on another BAER coordinator from a neighboring Forest to assist. The majority of the Team is comprised of local Gila Forest employees. A few additional specialists are requested from off-Forest. The Regional BAER coordinator also recommends a trainee to serve as an Assistant Team Leader to gain some experience, and also encourages having a Public Information Officer (PIO) on the Team. May 31 Coordination Meeting Held with Cooperators and Stakeholders The Gila National Forest hosts an early coordination meeting with partners: U.S. Army Corps of Engineers (ACOE); USDA Natural Resources and Conservation Service Whitewater-Baldy Complex BAER Process • Facilitated Learning Analysis 6 (NRCS); Federal Emergency Management Agency (FEMA); U.S. Geological Survey (USGS); New Mexico Department of Transportation (NMDOT); New Mexico Environment Department (NMED); as well as personnel from the affected counties. This meeting’s goal is to identify where— and articulate why— the Whitewater-Baldy Complex Fire could pose threats to human Photo by K. Palmrose life and safety and Members of the Whitewater-Baldy Complex BAER Team members meet with Gila Hot Springs residents. infrastructure. The meeting is also intended to formulate a response to the fire’s potential impacts, including: flooding, debris flows and excessive sedimentation that could impact areas on the Gila National Forest as well as on adjacent private property. This coordination meeting met multiple objectives. Important information—such as the expedited timeframe—was conveyed. The meeting emphasized how timing was the key to the success of the emergency response effort, pointing out how BAER treatments and projects needed to be implemented prior to the onset of the monsoon season. Through this meeting, the Forest was able to gain support for its efforts and the cooperators (mentioned above) articulated what resources or funding they were able to leverage within their authorities. In addition, the Forest started working with local communities and cooperators to formulate a response to the impacts of potential flooding, debris flows, and excessive sedimentation likely to occur that could affect areas on the Forest as well as on adjacent private property. June 3 BAER Team Assembled and Onsite The 25-member BAER Team is onsite. The Assessment Team Leader has provided the Team members with their assessment assignments—with a goal of completing their assessment by June 17. Whitewater-Baldy Complex BAER Process • Facilitated Learning Analysis 7 Whitewater-Baldy Complex BAER Team members meet with residents of Glenwood, New Mexico. Whitewater-Baldy Complex BAER Team members meet with residents of Glenwood, New The