Wildland Fire Admin Performance Report (04P-11)
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Legislative Audit Division State of Montana Report to the Legislature December 2004 Performance Audit Wildland Fire Administration Department of Natural Resources and Conservation Forestry Division Fire And Aviation Management Program This report provides information on DNRC’s role in wildland fire suppression. The report focuses on the 2003 fire season and addresses questions posed by the Legislative Audit Committee about fire costs, communication/coordination with federal and local fire protection agencies, and availability of resources. Based on our review we developed conclusions and recommendations in a number of areas including: The most effective cost containment strategy is preventing fires from getting large. To improve accomplishment of this strategy, initial attack resources must be enhanced. Fire business practice controls are in place and the majority of these controls were adhered to on 2003 project fires. However, improvements can be made both during and after fires. Direct comments/inquiries to: Legislative Audit Division Room 160, State Capitol PO Box 201705 04P-11 Helena MT 59620-1705 Help eliminate fraud, waste, and abuse in state government. Call the Fraud Hotline at 1-800-222-4446 statewide or 444-4446 in Helena. PERFORMANCE AUDITS Performance audits conducted by the Legislative Audit Division are designed to assess state government operations. From the audit work, a determination is made as to whether agencies and programs are accomplishing their purposes, and whether they can do so with greater efficiency and economy. The audit work is conducted in accordance with audit standards set forth by the United States Government Accountability Office. Members of the performance audit staff hold degrees in disciplines appropriate to the audit process. Areas of expertise include business and public administration, mathematics, statistics, economics, political science, criminal justice, computer science, education, and biology. Performance audits are performed at the request of the Legislative Audit Committee which is a bicameral and bipartisan standing committee of the Montana Legislature. The committee consists of six members of the Senate and six members of the House of Representatives. MEMBERS OF THE LEGISLATIVE AUDIT COMMITTEE Senator John Cobb Representative Dee Brown Senator Mike Cooney Representative Tim Callahan Senator Jim Elliott, Vice Chair Representative Hal Jacobson Senator John Esp Representative John Musgrove Senator Dan Harrington Representative Jeff Pattison, Chair Senator Corey Stapleton Representative Rick Ripley Legislative Audit Division Performance Audit Wildland Fire Administration Department of Natural Resources and Conservation Forestry Division Fire And Aviation Management Program Members of the audit staff involved in this audit were Lisa Blanford, Steven E. Erb, Joe Murray, and Mike Wingard. LEGISLATIVE AUDIT DIVISION Scott A. Seacat, Legislative Auditor Deputy Legislative Auditors: John W. Northey, Legal Counsel Jim Pellegrini, Performance Audit Tori Hunthausen, IS Audit & Operations James Gillett, Financial-Compliance Audit December 2004 The Legislative Audit Committee of the Montana State Legislature: In December 2003, the Legislative Audit Committee approved a performance audit of the state’s wildfire preparedness and suppression programs. Wildland fire administration is often done in a multi-jurisdictional environment between state, federal, and local government agencies. The Department of Natural Resources and Conservation (DNRC) is responsible for administering the State of Montana’s wildland fire activities. This report provides information on DNRC’s role in wildland fire suppression. The report focuses on the 2003 fire season and addresses questions posed about fire cost, communication/coordination with federal and local fire protection agencies, and availability of resources. The audit found the most effective cost containment strategy is preventing fires from getting large. We also noted fire business controls exist on project fires. While these of controls were generally followed during the 2003 fire season, we noted some improvements could be made to further strengthen the controls. Our report provides conclusions regarding the department’s wildland fire administration process and recommendations to improve DNRC’s initial attack capabilities, fire business controls, and aviation resources. We also make a recommendation to the legislature to clarify Montana’s wildland fire policy. A response to the audit finding from DNRC officials is contained at the end of the report. We wish to express our appreciation to the department, officials from federal and local government agencies, and private wildland fire contractors for their cooperation and assistance during the audit Respectfully submitted, (Signature on File) Scott A. Seacat Legislative Auditor Room 160, State Capitol Building PO Box 201705 Helena, MT 59620-1705 Phone (406) 444-3122 FAX (406) 444-9784 E-Mail [email protected] Table of Contents List of Figures and Tables ....................................................................... vi Appointed and Administrative Officials.................................................vii Report Summary....................................................................................S-1 Chapter I - Introduction............................................................................................................................. 1 Background............................................................................................... 1 Audit Objectives ....................................................................................... 1 Scope and Methodologies......................................................................... 2 Key Terms and Definitions....................................................................... 2 Report Organization Overview................................................................. 4 Chapter II - Background............................................................................................................................ 7 Introduction............................................................................................... 7 General Observation Regarding Wildland Fires....................................... 7 Fuels Reduction and Enhanced Initial Attack are the Primary Ways to Reduce Fire Suppression Costs ............................................. 7 General Organization of Statewide Fire Management Agencies.............. 7 Primary Federal Agencies are Forest Service and BLM ..................... 8 Forestry Division's Fire and Aviation Management Program (FAM) Responsibilities are Statewide................................................. 8 Local Fire Service Organizations ........................................................ 8 Private Sector Firefighting Resources ................................................. 9 Wildland Fire Administration by DNRC.................................................. 9 Direct Protection.................................................................................. 9 Forest Fire Districts........................................................................ 9 Agreement Areas (Affidavit Protection Units)............................. 10 State-County Cooperative Protection ................................................ 10 Funding of Montana Wildland Fire Protection and Suppression Expenditures ........................................................................................... 11 Fire Suppression is Presently Paid for With Supplemental Appropriations................................................................................... 12 Placing Montana's 2003 Fire Season in Perspective............................... 13 2003 Fires on State-Protected Land................................................... 14 Fire Cost Factors................................................................................ 15 National Studies of Fire Suppression Cost Containment and Related Issues ......................................................................................... 16 Summary................................................................................................. 18 Chapter III – Initial Attack of Wildland Fires....................................................................................... 19 Introduction............................................................................................. 19 DNRC Initial Attack Field Operations ................................................... 19 Unit Offices Administer Initial Attack Activities in Direct Protection........................................................................................... 19 How Are Wildland Fires Detected and Resources Dispatched?............. 20 Dispatching of Initial Attack Resources............................................ 21 Local Entities Receiving Fire Reports Notify Interagency Dispatch Centers................................................................................ 22 Page i Table of Contents Initial Attack Resource Levels................................................................ 23 DNRC Is Keeping Most Fires Small and This Helps Control Suppression Costs.............................................................................. 23 DNRC Initial Attack Resource Levels.................................................... 24 DNRC Has Improved Initial Attack Capabilities With More Helicopters........................................................................................