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Fuels Management Policy and Practice in the U.S. Forest Service

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Fuels Management Policy and Practice in the U.S. Forest Service University of Montana ScholarWorks at University of Montana Graduate Student Theses, Dissertations, & Professional Papers Graduate School 2010 FUELS MANAGEMENT POLICY AND PRACTICE IN THE U.S. FOREST SERVICE Erik K. Hakanson The University of Montana Follow this and additional works at: https://scholarworks.umt.edu/etd Let us know how access to this document benefits ou.y Recommended Citation Hakanson, Erik K., "FUELS MANAGEMENT POLICY AND PRACTICE IN THE U.S. FOREST SERVICE" (2010). Graduate Student Theses, Dissertations, & Professional Papers. 473. https://scholarworks.umt.edu/etd/473 This Dissertation is brought to you for free and open access by the Graduate School at ScholarWorks at University of Montana. It has been accepted for inclusion in Graduate Student Theses, Dissertations, & Professional Papers by an authorized administrator of ScholarWorks at University of Montana. For more information, please contact [email protected]. FUELS MANAGEMENT POLICY AND PRACTICE IN THE U.S. FOREST SERVICE By ERIK KAJ HAKANSON M.S. University of Montana, Missoula MT, 1997 B.A. Lewis and Clark College, Portland OR, 1991 Dissertation presented in partial fulfillment of the requirements for the degree of Degree Doctorate of Philosophy in Forestry The University of Montana Missoula, MT July 2006 Approved by: Perry Brown, Associate Provost for Graduate Education Graduate School Dr. James Burchfield, Chair College of Forestry and Conservation, Department of Society and Conservation Dr. Ronald Wakimoto College of Forestry and Conservation, Department of Ecosystem and Conservation Sciences Dr. William Borrie College of Forestry and Conservation, Department of Society and Conservation Dr. Cameron Lawrence School of Business Administration, Department of Management Information Systems Dr. Irene Appelbaum College of Arts and Sciences, Department of Anthropology © COPYRIGHT by Erik Kaj Hakanson 2010 All Rights Reserved i Hakanson, Erik, PhD., August, 2010 Forestry Fuels Management Policy and Practice in the U.S Forest Service Committee Chair: James Burchfield This dissertation investigates the history and development of wildland fire and fuels management policy in the U.S. Forest Service (USFS) and the implementation of this policy in fuels management project planning at the national forest and ranger district levels. The policy guiding fuels management is broad and ambiguous but may be summarized as: 1) reducing the risks posed by wildland fire and 2) restoring or maintaining ecosystem health and sustainability. Wildland fire management policy is interagency in scope, including input from state governments and is dispersed among a multitude of policy and strategy documents, such as the 1995/2001 Federal Wildland Fire Policy, successive fire policy implementation guidelines as well as the various documents collectively known as the National Fire Plan. To these policy documents have been added the legislation and regulatory enactments of the Healthy Forest Initiative. The relationship between these policy and strategy documents and these legislative and regulatory enactments is not well defined nor are concepts such as risk, restoration and ecosystem health or sustainability. There is no clear guidance for determining environmental conditions or management actions that contribute to risk or sustainability or for adjudicating conflicts between them. This research examined three national forests in the Forest Service Northern Region; the Bitterroot, Helena and Kootenai, to understand how fuels management project proposals are developed and to identify the key factors that affect this development. The results suggest that fuels management project proposals are developed within a loosely defined process called NFMA analysis. It is an iterative process of negotiation with specialists from other resource management programs in which a project’s objectives and treatments are refined and defined. This research suggests that the key factors that affect the development of project proposals are fuels management acreage targets and the budget associated with this target and the costs associated with data collection and analysis estimated by managers to be necessary for regulatory and policy compliance and to mitigate the threat of litigation. Some recommendations are offered in the context of current efforts to develop a cohesive wildfire management strategy and new forest planning regulations. ii ACKNOWLEDGEMENTS This work has benefited from the strong support of and professional input from many individuals. Special thanks are due first to James Burchfield, my committee chair, for his support and confidence through many iterations of this work. Thanks are also due to member so my committee, Bill Borrie, Ron Wakimoto, Cameron Lawrence and Irene Appelbaum for their encouragement and thoughtful insights. I am particularly grateful to the support of the National Center for Landscape Fire Analysis (NCLFA) at the University of Montana without which this research would not have been possible. This work benefited immeasurably from the insights and experience of Dr. Lloyd Queen, director of NCLFA and Carl Seielstad, Fire and Fuels Program Manager. I am grateful to the Plum Creek Fellowship for early support of my education and to all the faculty and staff of the College of Forestry and Conservation. Special thanks go to all the Forest Service personnel on the Helena, Bitterroot and Kootenai National Forests, as well as at the Regional Office, who submitted to my grueling questioning, many for multiple interviews and field trips, but unfortunately must remain anonymous. Finally, I am very grateful to my friends and family for their patience and support throughout my years of education, listening attentively as I hold forth on the nuances of fire policy history and development. A special thanks to Beth Leeming and my son Ian, two who put up with more discussions of fire than most in this process. - iii - TABLE OF CONTENTS List Tables and Figures…………………………………………………………………..vii CHAPTER ONE: INTRODUCTION & RESEARCH QUESTIONS………………..1 1.1 Introduction……………………………………………………………………………1 1.2 Research Questions……………………………………………………………………7 CHAPTER TWO: METHODS………………………………………………………..10 2.1 Overview……………………………………………………………………………..10 2.2 Site Description………………………………………………………………………12 2.3 Data Collection Overview……………………………………………………………14 2.3.1 Interviews and Participant Observation……………………………………………15 Interviews………………………………………………………………………...16 Participant Observation………………………………………………………….19 Documents………………………………………………………………………..20 2.4 Theoretical Approach………………………………………………………………...22 CHAPTER THREE: FUELS MANAGEMENT POLICY IN THE U.S. FOREST SERVICE………………………………………………………………………………..31 3.1 Introduction…………………………………………………………………………..31 3.2 From Fire Control to Fire Management……………………………………………...32 All Fires Out By 10 AM………………………………………………………….32 Early Opposition to Total Fire Control………………………………………….33 Fire by Prescription……………………………………………………………...34 Defining Fire Management………………………………………………………35 Fire Knowledge and Considerations…………………………………………….36 3.2.1 The Role of Fire Management in Land Management……………………………...38 3.2.2 The End of Total Fire Control…………………………………………………...41 Unintended or Haphazard Implementation of Fire Management……………….42 The Fires of 1988………………………………………………………………...44 3.3 The Rise of Ecosystem Management………………………………………………...47 Early Developments……………………………………………………………...49 Putting Meat on the Concept…………………………………………………….49 3.3.1 Ecosystem Management: Taking Fire Ecology Seriously…………………………60 3.3.2 Tensions over a Shifting Mission………………………………………………….63 Opposition from the Old Guard………………………………………………….67 3.3.3 The GAO’s Call for a Cohesive Strategy………………………………………….69 Forest Service Fire & Aviation Management Response to the GAO……………74 3.3.4 The Forest Service Cohesive strategy……………………………………………...79 3.3.5 The National Fire Plan……………………………………………………………..88 3.4 From Ecosystem Management to the Healthy Forest Initiative……………………...98 - iv - 3.4.1 The 2001 Federal Fire Policy……………………………………………………..100 3.4.2 The National Fire Plan’s 10-Year Comprehensive Strategy……………………...102 3.4.3 The Interagency Cohesive Strategy………………………………………………108 Integrated multi-scale assessment and planning……………………………….110 3.4.4 The End of Integrated Landscape-Scale Fire and Fuels Assessment and Planning………………………………………………………………………………...119 Forest Planning Rules Withdrawn Again………………………………………121 Ecosystem Management Reduced to Rhetoric………………………………….123 The Misrepresentation of Fire Regime Condition Class……………………….127 Demise of the Interagency Cohesive Strategy………………………………….130 The Healthy Forest Initiative…………………………………………………...132 3.4.5 A New Forest Planning Rule: Integrated Assessments Optional………………....134 3.4.6 Removing the Strategy from the GPRA Strategic Plan…………………………..135 3.4.7 The End of Landscape-Scale Fuels Management………………………………...138 3.5 Summary: Whither Fuels Management Policy?........................................................145 CHAPTER FOUR: THE STRUCTURE AND PROCESS OF FUELS MANAGEMENT PROJECT PLANNING IN THE U.S. FOREST SERVICE…..153 4.1 Introduction…………………………………………………………………………153 4.2 The New Role of Fuels Management in Forest Service Project Planning………….156 4.3 Overview of NFMA Analysis………………………………………………………160 Targets and Funding……………………………………………………………165 Compliance with Law, Regulation and Agency Policy, the Threat of Litigation and the Cost of Data Collection and analysis……………….………165 The Organizational Structure of NFMA Analysis………………………………166 4.4 Key Factors of Project
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