Building capacity: workshops to master prescribed burns

Participants in an agency administrator workshop about to ignite the prescribed fire, some for the first time, in Missoula, Montana, in May 2025. The workshops help the U.S. Department of Agriculture Forest Service reach its goal of expanding use of prescribed fire. Photo courtesy of the National Interagency Prescribed Fire Training Center.

By Erin Myers and Steven Miller

The US Department of Agriculture Forest Service has ambitious goals: to treat an additional two million acres of hazardous fuels on national forests and grasslands annually; and to support partners by treating an additional three million acres of hazardous fuels annually on other federal, state, tribal and private lands.

To achieve these goals, the use of prescribed fire needs to expand significantly; an increase in prescribed fire is dependent on growing the workforce capacity. Agency administrator workshops are one way to expand that capacity.

This article is published in the latest issue of Wildfire magazine. Read the full edition here.

The benefits of experiential learning (learning by doing) have long been recognized by the wildland fire community. In wildland fire in the United States, this is best exemplified by the position task book system of training; trainees are assigned a book of the many tasks necessary to be fully successful in a role, and they perform those functions under the watchful eye of a fully qualified mentor. Experiential learning is one of the quickest methods to expand the capability of the workforce.

The desire to increase workforce capacity through experiential learning led to the establishment of the National Interagency Prescribed Fire Training Center (Center) in 1998. The Center’s mission is to maintain a national interagency center of excellence for prescribed fire, with an emphasis on actual field experience, to increase skills and knowledge and to build confidence in the application of prescribed fire.

Participants igniting the burn unit under the supervision of instructors / mentors at the agency administrator workshop in Missoula, Montana in May. Photo courtesy of the National Interagency Prescribed Fire Training Center.
Participants igniting the burn unit under the supervision of instructors / mentors at the agency administrator workshop in Missoula, Montana in May. Photo courtesy of the National Interagency Prescribed Fire Training Center.

Based in Tallahassee, Florida, the Center originally focused on actual prescribed burning qualifications through 20-day field sessions. During those 20-day trainings, participants traveled to several remote sites to take advantage of prescribed burning and learning opportunities with a variety of agencies, fuel types, and challenges such as the wildland-urban interface. The training locations were in areas where hosts had well-established burn programs with broad prescription windows and high levels of interagency cooperation.

In 2002, the Center began hosting workshops on prescribed fire specifically designed for agency administrators to develop knowledge, skills and confidence in oversight of a prescribed fire program. An agency administrator is defined by the U.S. National Wildfire Coordinating Group as “the official with the delegated authority, responsibility, and qualifications for decision making on incidents or prescribed fires within a particular administrative unit. The managing officer of an agency, division thereof, or jurisdiction having statutory responsibility for incident mitigation and management.” Examples of agency administrators are federal line officers, state forest officers / delegates or fire managers, tribal chairpersons, fire chiefs, police chief, sheriffs, mayors or county representatives.

Regarding wildland fire management, either prescribed fire or fire suppression, the agency administrator is the responsible person representing a particular agency. With prescribed burning the agency administrator has administrative responsibility and delegates the responsibility of technical fire operations to the burn boss. Agency administrators must be prepared to make critical and informed wildland fire management decisions related to land and assets under their span of authority.

“I strongly believe this should be REQUIRED for new line officers in the USFS within the first two years. The mix of hands on, situational, and classroom learning really made this a dynamic and effective course to learn more about both [prescribed burns] and the role of the [agency administrators] in [prescribed burns].”

Prior to 2022, the Center’s activities were primarily in the Southeastern United States and included two agency administrator workshops annually. The 2022 National Prescribed Fire Review called for the Center to expand westward by January 2023. The agency administrator workshop in Missoula, Montana, May 1-7, 2025, was the third session held in the western United States. Other workshops were in Bend, Oregon, in May 2024, and Albuquerque, New Mexico, in October 2024.

“I recognize that communication between line, fuels and the rest of the district is critical to success.”

Workshop participants are selected from numerous agencies across the United States including the Forest Service, National Park Service, Fish and Wildlife Service, Bureau of Indian Affairs, Bureau of Land Management, and Department of Defense as well as partners such as states and The Nature Conservancy, a global non-profit dedicated to conserving land and water.

The workshops help agency administrators develop the core competencies necessary to hold decision-making authority for wildfires or prescribed fires. Participants learn about:

• Risk-informed decision making.

• Wildfire response and incident management processes.

• Wildland Fire Decision Support System / Integrated Fuel Treatment Decision Support System and other decision support tools.

• Fuels management and prescribed fire processes.

• Fire prevention, mitigation, and education processes.

• Social, political, economic, and environmental impacts of wildland fire management activities, including prescribed fire.

• Effective communication.

• Collaboration with partners and stakeholders.

• Fiscal management.

“I learned the importance of Leader’s Intent to support and grow my fire program.”

(According to the National Wildfire Coordinating Group, the Leader’s Intent is a statement that outlines what people must know to be successful for a given assignment including tasks, purpose and end state – how things should look when successful completed.)

The objective of agency administrator workshops is that upon completion the agency administrator will:

• Demonstrate the knowledge and confidence necessary to grow or sustain a safe and successful prescribed fire program.

• Demonstrate an understanding of national policy, agency administrator responsibility, accountability, and authority to approve all prescribed fire management actions.

• Identify the principles, policies and procedures to effectively provide oversight of a prescribed fire management program.

A key strength of the training program is the instructors’ proficiency with prescribed burning. The cadre of instructors includes agency administrators and prescribed fire practitioners, who, as a group, have more than 550 years of experience in every aspect of a successful prescribed fire program.

The cadre – composed of federal employees, cooperators and private consultants – is organized into two groups: one focuses on development of exercises, burns, and logistics; the other concentrates on providing mentoring and presentations. The groups interact seamlessly to coordinate instruction and facilitate learning moments as they arise. (A cooperator is defined by the National Fire Coordinating Group as a federal, tribal, state or local agency that participates with other agencies in planning and conducting fire or emergency management projects and activities.)

An important element of the agency administrator workshop is the opportunity for mentoring between the cadre and the participants. Mentoring is a critical consideration in all aspects of the workshop including the formation of the agenda, the selection of the instructors and even the selection of the facilities. The instructors are fully committed to this concept and have arranged for every opportunity to stay involved with the participants including at meals, breaks and social hours. Small group formation is continually reorganized to maximize one-on-one mentoring opportunities and peerto-peer interaction. The overall design of the workshop maximizes the opportunity for mentoring.

The curriculum is designed around several foundational elements including risk management, overcoming constraints, effective internal and external communication, protocol and policy on escapes, burning in the wildland-urban interface, building successful programs, air quality and smoke, liability, land management plans, fire management plans, burn plans, landscape wide application, program monitoring, review and approval responsibility, accountability, oversight and developing partnerships. While the curriculum is consistent, it is also highly adaptable. On the first day of the workshop, participants provide their expectations for the workshop and the instructors then tailor agenda items to the expectations.

Each workshop includes two prescribed burn days. Each burn day has a specific set of objectives designed to give agency administrators hands-on experience. The objectives of the first burn day are to provide the participants with a better understanding of the burn-day organization and the roles and responsibilities of the agency administrator, burn boss, and firing boss. The objectives of the second burn day allow participants to experience simulated pressures, time constraints and the need for flexibility that employees experience on every burn day. This is achieved by allowing the participants to plan, organize and implement a small, prescribed fire with minimal input from the host unit or instructors.

A classroom presentation during the agency administrator workshop in Missoula, Montana, about how to build an action plan. Photo courtesy of the National Interagency Prescribed Fire Training Center.
A classroom presentation during the agency administrator workshop in Missoula, Montana, about how to build an action plan. Photo courtesy of the National Interagency Prescribed Fire Training Center.

Attrition at the agency administrator and burn boss levels leads to loss of institutional knowledge and experience. Land-management agencies need a system for transferring institutional knowledge and experience to new agency administrators and less experienced burn bosses, especially with respect to complexity analysis and burn-plan review processes. The workshops are one tool to facilitate the transfer of that knowledge and experience.

Workshops are planned for; Jan. 29-Feb. 3 in Florida (location TBD); and May 14-19 in Redding, California.

“It was obvious why each cadre member was selected. They were experts in their field with decades of experience, and they each had a passion for both their work and teaching others.”

Steve Miller

Steve Miller served on the board of directors for IAWF from 2017 through 2023, serving as vice president in 2022. Miller has worked in fire since joining the Texas Forest Service in 1985. Since 2018, he has been employed by the US Forest Service, as the director of fire and aviation management for the eastern region.

Prior to joining the USFS, Miller spent 31 years working for the State of Florida. He has a passion for prescribed fire and teaching, having served as adjunct instructor for the University of Florida and the University of Wisconsin Stevens Point.

Erin Myers

Erin Myers joined the National Interagency Prescribed Fire Training Center cadre in 2023, after completing the agency administrator workshop in 2022. Myers became a Florida state certified burner in 2005 and primarily assisted private landowners with prescribed fire planning until 2020, when she became a refuge manager with the US Fish and Wildlife Service National Wildlife Refuge System in Southwest Florida.

In 2018, Myers started training to become a public information officer for wildfire and prescribed fire. She works closely with the U.S. Fish and Wildlife Service Zone 3 fire team in South Florida, assisting with prescribed burning on multiple refuges as either a public information officer, FFT2 or agency administrator. Myers loves sharing information about the benefits of prescribed fire on the landscape with partners and communities.

Report: US Forest Service is sometimes overstating fuel management accomplishments

Forest thinning in the Umpqua National Forest
Forest thinning project in the Umpqua National Forest. Credit, Oregon State University.

NBC News conducted an investigation into some of the claims and statistics about vegetation management projects that are designed to improve forest health and/or and reduce the threat of wildfires. The emphasis of the very lengthy article about their findings was not so much to question the need or effectiveness of the hazardous fuel reduction projects, but to examine their claims of accomplishments, which are sometimes misleading.

Many fuel management projects on National Forests include multiple treatments of a single area. There can be some combination of thinning, pruning, piling, chipping, or prescribed burning, all considered independently and occurring at different times. In an extreme scenario, if the project was 100 acres and five different treatments occurred, each might be reported as accomplishing 100 acres of fuel treatment. They then tell Congress they treated 500 acres.

The NBC article gave an actual example of a project on the San Bernardino National Forest in Southern California near Big Bear Lake. The 173-acre project had multiple treatments. From the article:

They first [step] appeared in 2016, when the Forest Service assigned workers to cut trees to reduce the area’s density. The agency came back two years later, pruning the remaining trees and piling the cut wood across the full 173 acres, then chipping 52 acres of it. A few months later, workers burned 18 acres of the piles.

The pruning, piling, chipping and burning were entered as separate items in the database and the agency reported them as 416 acres of treated land in its 2019 fiscal year totals to Congress. In summer 2021, it burned the remaining 155 acres of piles, reporting them in that year’s totals.

The Forest Service’s efforts ultimately reduced fire risk on 173 acres of land, but they were reported to Congress as 744 acres over four fiscal years.

“These acres are reported six times because we must request funding to accomplish the full suite of activities on the same 173 acres,” said [Wade] Muehlhof, the service’s spokesperson. “Each of these activities needs to be planned and budgeted for annually.”

The Forest Service tells Congress that it reduces wildfire risk on more than 2.5 million acres of its land every year. But this process of recounting the same acres any time more than one type of work is completed means that far less land is protected from damaging fire than is being reported.

NBC estimates that nationwide the FS has overstated accomplishments by 2.5 million acres, or 17 percent. In California the numbers are higher, 27 percent in the past five years, and by roughly 35 percent in the places near the most people, the state’s wildland urban interface areas.

The NBC article was written by Adiel Kaplan, with assistance from Monica Hersher and Joe Murphy.

California agencies intend to ramp up prescribed burning

Whaley prescribed fire, Black Hills National Forest
Whaley prescribed fire, Black Hills National Forest, January 13, 2016. Photo by Bill Gabbert.

A group of state and federal land management agencies in California has established a plan to promote the use of “beneficial fire”, and by 2025 expect to treat up to 400,000 acres a year.

That is well short of the agreement the same agencies reached in 2018 to treat one million acres per year by 2025. In August, 2020 they recommitted to that same one million-acre target. The plan released last week restates the one-million goal on page 17, but on the following page says, “By 2025, land managers will seek to deploy beneficial fire on 400,000 acres annually, based on the following targets and estimates:”

Targets, California prescribed fire and cultural burning
Targets, California prescribed fire and cultural burning. From the report on page. 18

The numbers above total 300,000 prescribed/cultural acres each year plus 120,000 to 200,000 acres of fire managed for resource benefit.

Beneficial fire, a term not widely used, is defined in the document as including prescribed fire, fire managed for resource benefit (less than full suppression of unplanned ignitions), and cultural burning by California Native American tribes.

Between 2017 and 2020, CAL FIRE and the US Forest Service completed or assisted with prescribed fire activities on approximately 80,000 acres annually, according to the plan released by the agencies last week. In the same period tribes, California State Parks, the National Park Service, local agencies, and private entities completed burns on tens of thousands of additional acres annually. The USFS and NPS also completed approximately 20,000 acres each year of fire managed for resource benefit. The amount of land thinned or converted into fuel breaks but not burned would add to that figure.

Doing some back of the envelope ciphering, let’s assume that during that four-year period about 120,000 acres were prescribed burned each year. Current estimates indicate that between 10 million and 30 million acres in California need some form of fuel reduction treatment. To use a middle ground number, if 20 million acres need to be treated on an average fire return interval of 20 years, for example, that works out to one million acres that need to be treated each year, about eight times the area treated every year recently. The actual average fire return interval should probably be less, especially considering that neglected areas will need both an initial entry burn and at least one subsequent burn before they can be restored to a sustainable fire regime and obtain maintenance status.

Norbeck prescribed fire
A member of the Alpine Hotshots ignites the Norbeck prescribed fire, October 20, 2014 in Custer State Park, SD. Photo by Bill Gabbert.

The plan released last week by the Governor’s Wildfire and Forest Resilience Task Force indicates that the state of California will begin managing some fires for resource benefit, major change in their policy. They will evaluate areas on state land where modified fire suppression strategies can be implemented, such as land trusts, ranches, and timber owners. Where appropriate and authorized by the state Legislature, CAL FIRE will use plans and agreements with land managers and landowners in order to allow unintentional ignitions to burn under predetermined and prescribed conditions, to accomplish resource benefits similar to prescribed fire.

The key elements of the plan include:

  • Launching an online prescribed fire permitting system to streamline the review and approval of prescribed fire projects;
  • Establishing the state’s new Prescribed Fire Claims Fund to reduce liability for private burners;
  • Beginning a statewide program to enable tribes and cultural fire practitioners to revitalize cultural burning practices;
  • A prescribed fire training center to grow, train, and diversify the state’s prescribed fire workforce;
  • An interagency beneficial fire tracking system;
  • Pilot projects to undertake larger landscape-scale burns; and
  • A comprehensive review of the state’s smoke management programs to facilitate prescribed fire while protecting public health.

“This plan is vital to improve the health and resilience of the state’s forests, reduce wildfire risk of vulnerable communities, and increase stewardship by Native American fire practitioners,” said Task Force Co-Chair and U.S. Forest Service Regional Forester Jennifer Eberlien.

The plan, California’s Strategic Plan for Expanding the use of Beneficial Fire, March 2022, was developed by the Governor’s Wildfire and Forest Resilience Task Force. It can be downloaded here: (large 17 MB file).