University of Montana ScholarWorks at University of Montana Graduate Student Theses, Dissertations, & Professional Papers Graduate School 2017 FIRE MANAGEMENT PROVISIONS IN FEDERAL WILDERNESS LAW Erik D. Alnes The University of Montana Follow this and additional works at: https://scholarworks.umt.edu/etd Part of the Natural Resources and Conservation Commons, and the Natural Resources Management and Policy Commons Let us know how access to this document benefits ou.y Recommended Citation Alnes, Erik D., "FIRE MANAGEMENT PROVISIONS IN FEDERAL WILDERNESS LAW" (2017). Graduate Student Theses, Dissertations, & Professional Papers. 11087. https://scholarworks.umt.edu/etd/11087 This Professional Paper 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]. Fire Management Provisions in Federal Wilderness Law By Erik D. Alnes Professional Paper Presented in partial fulfillment of the requirements for the degree of Masters of Science in Resource Conservation The University of Montana Missoula, MT 2017 Committee Members: Martin Nie (Chair), Carl Seielstad (Franke College of Forestry and Conservation), Sara Rinfret (College of Humanities and Sciences) TABLE OF CONTENTS EXECUTIVE SUMMARY..................................................................................................................................1 1. INTRODUCTION.........................................................................................................................................4 1.1 Research Questions and Organization.......................................................................................7 2. METHODS..................................................................................................................................................8 3. BACKGROUND.........................................................................................................................................10 3.1 The Wilderness Act Purpose....................................................................................................10 3.2 The Prohibition of Certain Uses...............................................................................................13 3.3 Special Provision for Fire Management...................................................................................15 4. WILDERNESS LAW AND FIRE MANAGEMENT.........................................................................................18 4.1 Pre-Suppression, Suppression, and Watershed Protection Provisions....................................19 4.2 Prescribed Burning Provisions.................................................................................................24 4.3 Aircraft and Mechanized Equipment Fire Provisions...............................................................25 4.4 Coordination Provisions...........................................................................................................27 4.5 Adjacent Land Provisions.........................................................................................................29 4.6 Non-Substantive Provisions.....................................................................................................30 4.7 Summary..................................................................................................................................32 5. FEDERAL AGENCY POLICIES AND REGULATIONS RELATED TO FIRE MANAGEMENT..............................36 5.1 Overall Fire Program and Wilderness Management Objectives..............................................38 5.1.1 Wilderness Management Objectives.......................................................................38 5.1.2 Fire Program Objectives...........................................................................................42 5.1.3 General Wilderness Fire Direction............................................................................45 5.2 Wilderness Fire Management Policies and Regulations..........................................................47 5.2.1 Wilderness Fire Objectives.......................................................................................48 5.2.2 Wildfire Planning and Decision-Making in Wilderness............................................51 5.2.3 Management-Ignited Prescribed Fire in Wilderness................................................56 5.2.4 Fuel Treatment in Wilderness..................................................................................60 5.2.5 4(c) Prohibited Uses on Wilderness Fires.................................................................62 5.2.6 Fire Management Activities in Wilderness..............................................................66 5.2.7 Burned Area Rehabilitation in Wilderness...............................................................69 ii 5.3 Summary..................................................................................................................................71 6. IMPLEMENTATION OF SPECIAL PROVISIONS..........................................................................................74 6.1 Case 1: Special Provisions Related to Pre-Suppression and Suppression Measures in the Los Padres National Forest Wilderness Areas......................................................................................74 6.1.1 Background..............................................................................................................75 6.1.2 Fire Management in Wilderness..............................................................................78 6.1.3 Current Wilderness Fire Management Actions in Wilderness..................................80 6.1.4 Conclusion................................................................................................................84 6.2 Case 2: Special Provisions Related to Aircraft and Mechanized Equipment Use in Southern Nevada Wilderness Areas..............................................................................................................85 6.2.1 Background: Clark County Wilderness Areas...........................................................86 6.2.2 Background: Lincoln County Wilderness Areas........................................................89 6.2.3 Fire Management in Wilderness..............................................................................91 6.2.4 Conclusion................................................................................................................93 6.3 Case 3: Special Provisions Related to Prescribed Burning in Northwestern Nevada Wilderness Areas..............................................................................................................................................96 6.3.1 Background..............................................................................................................96 6.3.2 Fire Management in Wilderness..............................................................................99 6.3.3 Conclusion..............................................................................................................102 7. CONCLUSION.........................................................................................................................................103 7.1 Conclusion 1: Section 4(d)(1) is discretionary and open-ended............................................103 7.2 Conclusion 2: Supplemental special provisions clarify fire management actions allowed in wilderness....................................................................................................................................104 7.3 Conclusion 3: Special fire provisions have become increasingly common and more descriptive...................................................................................................................................105 7.4 Conclusion 4: Supplementary clarification encourages manipulation in wilderness.............107 7.5 Conclusion 5: Fire management focuses on short-term compromise for long-term preservation of wilderness character..........................................................................................108 7.6 Concluding Remarks..............................................................................................................109 APPENDIX A: Special Provisions for Fire Management in Wilderness Legislation-Table..........................111 TABLE CITATIONS......................................................................................................................................124 iii Executive Summary This professional paper investigates the intersection of federal wilderness law, regulation, and policy, and its impact on fire management in federally designated wilderness areas. The Wilderness Act of 1964 established the National Wilderness Preservation System and mandates the preservation of wilderness character in designated areas. Wilderness is defined in the law as places with untrammeled, natural, and undeveloped qualities, with opportunities for solitude and unconfined types of recreation. The Wilderness Act prohibits temporary roads and the use of motor vehicles, motorized equipment, mechanical transport, and the landing of aircraft, only allowing these uses when deemed the ‘minimum requirement necessary’ for the purpose