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Department of Interior releases spending plan for Infrastructure funds

Bill GabbertFebruary 18, 2022February 17, 2022Uncategorizedbudget, legislation22 Comments

DOI Infrastructure spending 2022-2026 — Department of the Interior’s outline for spending funds appropriated by the Bipartisan Infrastructure Law for wildland fire, fiscal years 2022 through 2026.

The Department of the Interior (DOI), as required by the Bipartisan Infrastructure Law signed by President Biden on November 15, 2021, has released an outline for spending the $1.5 billion that the legislation appropriated to be used by the Department for wildland fire. Four agencies within the DOI have significant wildland fire responsibilities: Bureau of Land Management, Park Service, Fish and Wildlife Service, and bureau of Indian Affairs.

In January the US Forest Service announced how it will spend the $2.42 billion the agency will receive, and also here in February.

Before the bill was passed, we compiled a summary of the legislation’s provisions that relate to wildland fire.

Below are excerpts from a 13-page DOI document that explains how the new funds will be used.

…The Bipartisan Infrastructure Law (BIL) provides a total of nearly $1.5 billion to DOI for the Wildland Fire Management (WFM) programs and activities shown in the table below. Specifically, Division J appropriates $1,458,000,000. This funding is provided as emergency appropriations and is available for obligation until expended. Division J further specifies in which fiscal year (FY) amounts become available for obligation from FY 2022-FY 2026, as reflected in the table [above]. The U.S. Department of Agriculture (USDA) Forest Service received complementary appropriations for wildland fire management, and the two agencies are collaborating on and coordinating implementation of the BIL.

Preparedness – Workforce Reform: The BIL provides $120.0 million over five years to increase the compensation of Federal wildland firefighters, convert more firefighters to permanent, year-round employment, and support the health and safety of firefighters. The law directs DOI and USDA Forest Service to increase compensation for firefighters in some geographic areas and to work with the Office of Personnel Management (OPM) to establish a wildland firefighter occupational series. Further, DOI and USDA Forest Service are required to establish mitigation strategies for line-of-duty environmental hazards and firefighters’ mental health.

Other Preparedness: The law provides another $125.0 million over five years for other activities that will increase America’s preparedness to respond to wildland fire. They include support for workshops and training for firefighters, equipment, satellite detection and reporting, and wildfire detection and monitoring, and a pilot program to support Tribal Nations and local governments in wildfire response.

Fuels Management: The law provides $878.0 million over five years to plan and implement fuels management. This work will protect vulnerable communities from wildfire while preparing our natural landscapes for a changing climate. The law’s funding is intended to support mechanical thinning; prescribed fire; employing contractors, young adults, veterans, and Tribal Nations’ youth; and other fuels management.

Burned Area Rehabilitation: The law provides $325.0 million over five years to complete post-fire restoration activities. These actions help mitigate the damaging effects of wildfires and set landscapes on a path towards natural recovery and climate resilience.

Joint Fire Science Program: The law provides $10.0 million to DOI over five years to study and research wildland fire through the Joint Fire Science Program, which DOI and USDA jointly administer. The program will use the funding to conduct research on climate change interactions, smoke management concerns, impacts on diverse populations, and management actions that will make ecosystems more wildfire and drought resistant.

Funding for the Office of the Inspector General and Administration: The BIL requires that 0.5 percent of the appropriations be transferred to the Office of the Inspector General (OIG) and provides that DOI may use up to 3.0 percent of the appropriations for “salaries, expenses, and administration.” These amounts are reflected in the table on page 3.

Timeline for Implementation – FY 2022 and Later Years

The law establishes several deadlines that will serve as milestones for implementation, including the following:

Beginning October 1, 2021 (no deadline for completion set in the law): DOI and USDA Forest Service will:
- Seek to convert not fewer than 1,000 seasonal wildland firefighting positions to permanent year-round positions that are full-time and reduce hazardous fuels on Federal land not fewer than 800 hours per year (each position); and
- Increase the salary of wildland firefighters by an amount equal to the lesser of $20,000 or 50 percent of base salary if the DOI and USDA Secretaries and the OPM Director determine that a position is in a geographic area where it is difficult to recruit or retain Federal wildland firefighters.
Mid-December 2021: DOI, USDA, and DHS (through the FEMA Administrator) jointly established a Wildland Fire Mitigation and Management Commission to (1) study and make recommendations on preventing, mitigating, suppressing, and managing wildland fires, and (2) rehabilitate land devastated by wildfires. The Secretary of the Interior, the Secretary of Agriculture, and the FEMA Administrator serve as co-chairs, and other Commission members will be appointed. The Commission will issue a report within one year of the first Commission meeting.
March 14, 2022 (120 days post-enactment): DOI and USDA Forest Service will establish a five-year monitoring, maintenance, and treatment plan.
May 13, 2022 (180 days post-enactment): DOI and USDA Forest Service will develop a distinct wildland firefighter job series, in coordination with OPM.
Annually December 31, 2022-2026: DOI and USDA Forest Service will submit a report to Congress on the number of acres of land on which projects carried out using the BIL’s treatment funds improved the Fire Regime Condition Class of the land.
October 1, 2022: DOI and USDA Forest Service will develop and adhere to recommendations for mitigation strategies for wildland firefighters to minimize exposure to line-of-duty environmental hazards; and to recognize and address mental health needs, including post-traumatic stress disorder care.
September 30, 2027: By no later than this date, DOI and USDA will conduct restoration treatments and improve the Fire Regime Condition Class of 10,000,000 acres of Federal or Tribal lands identified as having a very high wildfire risk potential and that are located in the wildland-urban interface or a public drinking water source area.

Workforce and Compensation

Workforce Reform: The BIL provides DOI a total of $120.0 million over five years for firefighters’ compensation, position conversions, and health and safety. DOI will work with USDA Forest Service on strategies to increase firefighters’ compensation; convert hundreds more firefighters to full-year, permanent positions; and address firefighters’ mental health needs.
Workforce Assessment: Human capital is the most important investment for effective wildland fire management. Prior to enactment of the BIL, DOI decided to undertake an assessment of the wildland fire management workforce. This assessment will be valuable in implementing the BIL. DOI’s Federal Consulting Group, which is assisting the WFM program, has contracted for a Wildland Fire Workforce Assessment that will serve as baseline information about wildland fire personnel, including geographic location, pay and compensation, diversity, classification, and other factors to inform the determination of sustainable and effective workforce capacity needs. The assessment will be delivered to DOI by May 31, 2022.
Coordinated, Interagency Workforce Working Groups: To lead toward the establishment of a wildland firefighter series (deadline 180 days: May 13, 2022), DOI is participating in interagency working groups with OPM and USDA Forest Service to review the current classification series of wildland fire personnel. In addition to position classification and job series, these groups are also evaluating pay, compensation, and other benefits.
Compensation Increases for 2022: On June 30, 2021, the President announced compensation increases and retention incentives for the lowest-paid wildland firefighters. These increases were implemented over the summer for a six-month period covering through December 31, 2021. For 2022, DOI and USDA Forest Service issued guidance that no firefighter should be hired at a salary of less than $15 per hour. (Subsequently, OPM issued guidance that applies to positions governmentwide.) DOI and USDA Forest Service are coordinating with OPM on an analysis to propose a special rate request for firefighters.
Pre-Planning Fire Response Workshops and Training: DOI and USDA Forest Service, in coordination with stakeholders, will hold workshops and training for staff, non-Federal firefighters, and Tribal fire crews to effectively respond to wildfires and assist in increasing the pace and scale of vegetation treatments. The plan is for USDA Forest Service to lead on pre-planning fire response workshops that develop potential operational delineations and select potential control locations, and for DOI to lead on wildland firefighter training.

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A Senate infrastructure bill will address many wildland fire issues

Bill GabbertJuly 30, 2021January 18, 2022Uncategorizedbudget, legislation29 Comments

The Capitol, Washington, DC. Photo by Bill Gabbert

A $1 trillion bipartisan infrastructure bill with funding for some wildland fire issues passed an important procedural vote in the Senate Friday that opened up the legislative package to the next phase, potential changes and amendments. In the evenly divided body at least 60 votes are needed for amendments and final passage. It received 66 today which allows it to move forward in the process. The Senate version of the bill is S.2377 – Energy Infrastructure Act.

About 0.3 percent, or approximately $3,369,000,000 in this $1 trillion “small” infrastructure bill is directed at wildland fire. Another infrastructure bill that may spend more than $3 trillion will be considered later.

The $1 trillion version appropriates funds toward a couple of dozen wildland fire issues, most of which are important, but especially a few that have been near and dear to the hearts of Federal ~~firefighters~~ Forestry Technicians for years, especially the creation of a Wildland Firefighter occupational series. This would mean if the bill passes they will no longer be pigeonholed as they are now in a Forestry Technician job description. A bump in salary is also included.

After it made it onto the Senate floor this week things started happening quickly. While amendments can be brought forward, there is hope that the final version could receive a vote in a matter of days, perhaps as early as Sunday August 1. If not then, probably soon thereafter. However, with politicians and legislation anything is possible — or sometimes impossible. After it passes the Senate, then it moves to the House where the outcome is less certain. The politicians and staffers are motivated to do SOMETHING, because they are anxious to leave on their August recess.

The bill authorizes $600 million for management of personnel — those who fight fires.

The bill directs OPM to develop a distinct “wildland firefighter” occupational series.
The DOI and FS shall convert no fewer than 1,000 seasonal wildland firefighters to wildland firefighters that are full-time, permanent, year-round Federal employees who will reduce hazardous fuels on Federal land for at least 800 hours each year.
The base salaries of Federal wildland firefighters will be increased by the lesser of an amount that is commensurate with an increase of $20,000 per year or an amount equal to 50 percent of the base salary.
Develop mitigation strategies for wildland firefighters to minimize exposure due to line-of-duty environmental hazards.
Establish programs for permanent, temporary, seasonal, and year-round wildland firefighters to recognize and address mental health needs, including care for post-traumatic stress disorder.

Other provisions of the the bill, authorized for fiscal years 2022 through 2026. (M = million)

$20M, Satellite fire detection
$10M, Radio interoperability
$30M, Reverse 911 systems
$50M, Slip-on firefighting modules for pickup trucks
$100M, Pre-fire planning, and training personnel for wildland firefighting and vegetation treatments
$20M, Data management for fuels projects and large fires
$20M, Joint Fire Science Program (research)
$100M, Planning & implementing projects under the Collaborative Forest Landscape Restoration Program
$500M, Mechanical thinning, timber harvesting, pre-commercial thinning
$500M, Wildfire defense grants for at risk communities
$500M, Prescribed fires
$500M, Constructing fuelbreaks
$200M, Remove fuels, produce biochar and other innovative wood products
$200M, Post-fire restoration
$8M, Firewood banks
$10M, Wildfire detection and real-time monitoring equipment

One issue this legislation does not address is the inadequate funding of aerial firefighting, the use of air tankers and helicopters to assist firefighters on the ground by dropping water or retardant to slow the spread of wildfires, which is necessary for Homeland Security. The Federal agencies entered the year with 18 large air tankers and 28 large Type 1 helicopters, when they should have 40 large air tankers and 50 large helicopters on exclusive use 10-year contracts instead of the existing 1-year contracts.

Forest Service Chief calls for treating two to four times more hazardous fuels acres

Bill GabbertJune 17, 2021Uncategorizedbudget, fuels, hearing, pay, Victoria Christiansen13 Comments

Forest Service Chief Vicki Christiansen testified before the Senate Committee on Energy and Natural Resources June 17, 2021. (Still image from the Committee video.)

In what will be one of her last appearances in a Congressional hearing before she retires at the end of August, U.S. Forest Service Chief Vicki Christiansen called repeatedly for a “paradigm shift” for treating hazardous fuels.

Today she testified before the Senate Committee on Energy and Natural Resources to defend the President’s budget request for the U.S. Forest Service for Fiscal Year 2022 which begins October 1.

In addition to increasing the amount of timber harvested on Forest Service lands, the topic of reducing the number of devastating wildfires came up many times in the hour and a half hearing. A video is available on the Committee’s website.

Senator John Barrasso (WY) mentioned (at 27:49 in the video) that in an April hearing the chief said a paradigm shift was needed to reduce the hazard fuels in forests. He asked, “Do we need to dramatically increase the number of [wildfire mitigation] acres treated annually?” Chief Christiansen said,”Yes… We can’t just do the same old thing we’ve always done, just treat whatever acres we can get to… We have a crisis. We have a crisis that needs to be addressed differently.”

The Chief said the agency treats about three million acres each year, but they need to treat two to four times that amount.

Senator Ron Wyden (OR) got the Chief to confirm that the agency’s latest estimate is that it would take $20 billion over a 10-year period to “get in front of the hazardous fuel challenge” (at 39:25).

The National Wildfire Coordinating Group created a wildland fire glossary of terms, which includes their definition of “hazard fuels”:

A fuel complex defined by kind, arrangement, volume, condition, and location that presents a threat of ignition and resistance to control.

Senator Wyden addressed the possibility of a fire season this year that could be worse than average (at 36:40). He asked, “What is the plan for keeping people safe when there are fires in multiple communities in the West?”

Chief Christiansen said, in part, that in recent years there has been competition for firefighting resources when the number of fires have resulted in requests for firefighters and equipment that were unable to be filled, and later said, “Our system is at a breaking point.”

Senator Wyden asked the Chief to submit a “written statement on what the plans are if we are short on resources in the West.”

Senator Catherine Cortez Masto (NV) asked if the President’s proposed budget includes sufficient funding for battling wildfires, post-fire recovery, prevention, reducing hazard fuels, and addressing invasive species.

“Senator, it’s a step in the right direction. A significant step in the right direction… It helps in modernizing our wildland fire workforce. It does not get us every step that we need to be.

“I’m very concerned about our workforce,” she continued. “They are tired, and fatigued. Their mental well-being and stress that we are concerned about. Many of these folks are temporary employees and they try to make a year’s living in six to nine months. There are still more things to address, but this budget is a very good first step.

Senator Masto asked about the recruitment and retention challenges that the agency is facing (1:05:30).

“It’s a calling to do this work,” the Chief said. “But anybody should be able to have a living wage to do this work. We do have concerns about a competitive wage… We are committed to work with the Department of the Interior and others to do a comprehensive look at our workforce needs.”

“Please share that,” said Senator Masto. “It’s the same thing I’m hearing in my state from our fire chiefs. It’s a challenge. And this is something we have to address.”

Senator Angus King (Maine) said timber sales on public lands fell from 13 billion board feet in 1988 to 3.2 billion last year, a factor of five, he said. (1:13:07) “What in the hell happened,” he asked. Later he said, “Coincidentally from 1991 to 2020 the number of acres burned has gone up by a factor of five. Is there a connection?”

“Yes sir, there is,” the Chief quickly replied. The Senator moved on to another topic and did not allow her to fully explain why she thought there is a connection.

“People ask me, Chief, why don’t you just ask for all the money we need?”

Bill GabbertApril 24, 2021April 23, 2021Uncategorizedbudget, Victoria Christiansen18 Comments

Forest Service Chief Vicki Christiansen discusses last week’s budget hearing and the “wildfire crisis that is before us”

On April 21 Forest Service Chief Vicki Christiansen recorded another in a series of what she calls “selfie videos” in which she gives her take on recent activities within the agency. The Chief has done this on a number of occasions. They are informal and are sometimes recorded on a cell phone.

She began the most recent edition by talking about the weather, volunteers, Earth Day, Administrative Professionals Day, and telework, before shifting to her testimony April 15 before the House Appropriations Subcommittee on Interior, Environment, and Related Agencies. The purpose of the hearing was to discuss with members of Congress the proposed budget for the Forest Service for the fiscal year that begins October 1, 2021. It was pointed out critically on this website on April 17 that during the hearing she had two clear opportunities to accept or ask for more funding in two very important inadequately budgeted areas, fuels treatment and aerial firefighting.

You can watch the complete video at the bottom of this article. The Forest Service provided a “lightly edited for clarity transcript”, a portion of which is below. The Chief started talking about the hearing at 6:15. The transcript below begins at 7:10 after she introduced the topic in general terms.

…So, it was a really great hearing, it was my opportunity to really showcase all the great work that you all are doing. And if some of you aren’t familiar with the budget process, it’s a little bit complex, especially this year with this new administration coming in. They didn’t have the time to develop a full budget proposal. So, last week, what’s called the budget blueprint came out, and it’s just the high-level funding that the administration recommends to meet the priorities of the administration. You may notice, if you’re paying attention, there are some initiatives that bump up the Forest Service’s proposed budget in that budget blueprint. They’re high level, and there’s not a lot of detail, but it’s around our work to create resiliency for wildfire, climate change work and additional science resources.

The full budget won’t be out until the middle of May, so it was a little bit of a unique time to have a budget hearing because I really couldn’t talk about the administration’s full proposal because it’s not out yet. And, oftentimes, people ask me, “Chief, why don’t you just ask for all the money we need?” and the process is: we’re part of a big family, all right? The Forest Service is a part of a big federal family, and just to give you context, there’s $769 billion of discretionary funds for non-defense spending for all of the federal government. So, all of the appropriations committees in Congress divvy that out and those subcommittees then help decide based on the administration’s budget proposals how they’re going to prioritize and then how they’re going to negotiate with the other chamber—in this case it would be with the Senate—on a final budget construct. So, we’re part of that bigger federal family. We certainly talk about what we can do, I talk about our science, I talk about the challenges we face, but we’re a part, again, of that bigger family budget that is delivered as one administration and, in this case, right now, we only have that blueprint.

So, in the hearing last week, I got a lot of great questions about how we could invest in making a difference on the landscape and in serving the American people. I highlighted how Forest Service has really risen to the challenge in a very difficult year, how important it is that we steward the nation’s forests and serve the American people, the wildfire crisis that is before us, and that we really need to have a paradigm shift, quite frankly, in matching the work that we need to do to create more resilience on the landscape at the scope and scale to meet the challenge. I talked about the infrastructure and, of course, the resources that Congress gave us last year through the Great American Outdoors Act and how important that is in being able to provide a better experience for the American people, but also to provide critical jobs: jobs near national forests, particularly in rural areas, and we were really mindful of the job creation of that important investment that Congress had made.

So, it’s conversational; it was a virtual hearing, I did go into my office. I did it from my office, and we’re really figuring out how to even do hearings virtually. It will be provided in a link from this selfie video if you do want to take the time to watch it. It’s about an hour-and-a-half long but you can, of course, speed through the parts you don’t want to hear. And there was also, by the way, some really good engagement about our state and private mission area; you know, providing the capacity and the resources through our state forestry agencies and other partners for urban forestry and stewardship forestry, forest health and all the rest. So, really good conversations about state and private and our need and how we show up with our really important science in the Forest Service. So, one down, three more to go. The other three will likely be after the full budget comes out, so that will be a little bit of a regular way that we would do budget hearings.
Probably more than you ever wanted to know about budget and budget processes, but I know folks ask me, “Why don’t you just ask for more money, Chief?” and I want to give you a little bit of how the process works. So, I talk about the great work you do and how we’re a good investment and what the needs are on the ground.

I just signed my leadership intent letter for wildfire for the 2021 season, so that will be hitting all of your mailboxes. Look for that, and I think I’m going to try to do a little selfie video to give some highlights about the 2021 wildfire letter. For now, I’m going to call it a wrap.

I hope you all have a great day and a great rest of your week. Thank you for what you do. Stay safe and be well.

(end of transcript)

The “Leadership Intent letter” mentioned by the Chief can be downloaded here. Not much is surprising in the two-page document, but she does refer to COVID-19:

We will continue to use the foundational risk management practices that enabled success in 2020, including consistent mask use, small dispersed fire camps, remote incident management, enhanced safety protocols in our logistical contracts, and continued COVID-19 screening and testing of firefighters.

She also said vaccinations are good, safety is good, sexual harassment is bad, fuel treatment is good, and the Cohesive Strategy is good.

California to authorize $536 million for wildfire mitigation

Bill GabbertApril 10, 2021April 14, 2021Uncategorizedbudget, California6 Comments

About double what has been spent in recent years

Zogg Fire, in Northern California, looking west from West Peak at 3:46 p.m. PDT Sept. 27, 2020. AlertWildfire.

A bill expected to be signed by California’s Governor next week will authorize $536 million for forest management and wildfire mitigation in the state. This is about double what has been spent in recent years.

The final survey of the season found the snowpack at 59 percent of average, and most of the state’s reservoirs are at considerably lower levels than their historical averages. Most of California is in drought, ranging from moderate to exceptional, according to the April 6 Drought Monitor.

After budget cutbacks last year anticipating that the COVID-19 pandemic would reduce incoming funds, California ended up with a significant surplus.

Anticipating a greater need for wildfire mitigation, and now having dollars available, the Governor’s office released a statement that read in part:

“With California facing another extremely dry year, it is critical that we get a head start on reducing our fire risk. We are doing that by investing more than half a billion dollars on projects and programs that provide improved fire prevention for all parts of California.

“Key parts of the Administration’s initial proposal have been supplemented by legislative ideas that will pay dividends over the years, such as greater investments in forest health projects, improvements on defensible space, home hardening against fires, fire prevention grants, and prevention workforce training. The plan includes public and private lands vegetation management, community-focused efforts for prevention and resilience and economic stimulus for the forestry economy.”

About $22 million is being committed to help low-income and disadvantaged homeowners implement structure hardening to make them more resistant to wildfire.

At least $123 million is going toward the Fire Prevention Grants program. The funding will be awarded using criteria that maintains fire risk severity as the primary factor, and then prioritizes projects that protect a larger population base or number of structures relative to the size of the grant.

Democratic Sen. Bill Dodd, a member of the Senate Wildfire Working Group, said the new spending package includes more than $280 million for forest management and $200 million for fuel breaks.

California Governor proposes hiring 16 additional firefighting crews

Bill GabbertJanuary 9, 2021January 18, 2021Uncategorizedbudget, California13 Comments

And, $1 billion for forest health and reduction of fire risk

Map smoke Apple Fire — Satellite photo by GOES-17 of smoke created by the Apple Fire in southern California at 7 a.m. PDT August 2, 2020. NASA.

The California Governor’s proposed budget for the fiscal year that begins July 1 asks for 16 additional firefighting hand crews. Governor Gavin Newsom also wants to establish 14 more California Conservation Corps (CCC) crews that are often assigned at incident command posts on fires to assist with Logistics and other support functions.

The budget document says, “The fire crews will enable CAL FIRE to respond to larger and more damaging wildfires throughout the fire season and complete priority fuel reduction projects to reduce wildfire risk in fire-threatened areas.”

One of the justifications for the additional personnel was the “existing population trends” in prisons that has reduced the number of inmates available for firefighting.

Forest Health

The Budget also includes $1 billion for a comprehensive package of resources to increase the pace and scale of forest health activities and decrease fire risk, including $581 million for CAL FIRE in 2020-21 and 2021-22.

New Helicopters

Funds to replace CAL FIRE’s 12 Vietnam War-era Huey helicopters with Sikorsky S70i Firehawks have already been received and allocated. Three new ships have been deployed so far, and it is estimated that four more will be put into operation sometime during the 2021 fire season (for a total of seven). CAL FIRE expects to put the remaining five helicopters into the fleet in 2022.

C-130H air tankers

The Budget includes $48.4 million to support the phasing in of seven large air tankers, C-130Hs. The 2019 and 2020 Budget Acts included funding for the aircraft that will be transferred from the federal government starting in 2021-22. The air tankers, currently owned by the U.S. Coast Guard, are being retrofitted by the U.S. Air Force utilizing $150 million in federal funding. CAL FIRE is continuing to prepare for the arrival of these aircraft by training and certifying new dedicated flight crews and mechanics, and cross‑training and certifying its existing pilots to fly the aircraft to assist firefighters. CAL FIRE is working with its federal partners to meet the expected 2021-22 arrival of the air tankers.

Research

The budget also includes $5 million to provide a research grant to California State University, San Marcos to study enhanced firefighting equipment and strategies to protect firefighters from conditions present during wildfires in the wildland urban interface.

What’s next

The Governor’s proposed budget will be considered by the legislature and will be subject to modifications before a final budget is passed.