OCTOBER 2010 CROW TRIBAL LEGISLATURE
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OCTOBER 2010 CROW TRIBAL LEGISLATURE
JOINT ACTION RESOLUTION NO. JARI10-16
INTRODUCED BY CEDRIC BLACK EAGLE, CHAIRMAN
CROW TRIBAL EXECUTIVE BRANCH
A JOINT ACTION RESOLUTION OF THE CROW TRIBAL LEGISLATURE AND THE
CROW TRIBAL EXECUTIVE BRANCH ENTITLED:
“APPROVAL OF THE 2010-2024 CROW INDIAN RESERVATION FIRE
MANAGEMENT PLAN”
WHEREAS, management of prescribed and unplanned wildland fire on the Crow
Reservation is of vital interest to the Crow Tribe and members of the Tribe; and
WHEREAS, the Bureau of Indian Affairs, as part of its responsibility in managing the
Reservation forest resource, has reviewed the current plan and, with Tribal input, updated the
plan to reflect current information; and
WHEREAS, the 2010-2024 Crow Indian Reservation Fire Management Plan prepared
by the Bureau of Indian Affairs specifically provides that the plan can be revised annually with
updated management and policy direction; and
WHEREAS, the Executive Branch has the authority and responsibility pursuant to the
“enumerated powers” in Article IV, Section 3(a) of the Constitution and Bylaws of the Crow
Tribe to “represent the Crow Tribe of Indians in negotiations with Federal, State and local
governments and other agencies, corporations, associations, or individuals in matters of welfare,
education, recreation, social services, and economic development affecting the Crow Tribe of
Indians,” and in Section 3(f) to “negotiate and approve or prevent any sale, disposition, lease or
encumbrance of Tribal lands, interests in lands or other Tribal assets, including buffalo, minerals,
gas and oil with final approval granted by the Legislative Branch;” and
WHEREAS, the Legislative Branch has authority and responsibility pursuant to Article
V, Section 2(d) of the Constitution “to grant final approval or disapproval of items negotiated by
the Executive Branch of Government pertinent to the sale, disposition, lease or encumbrance of
Tribal lands, interests in lands or mineral assets provided that a process for such approval or
disapproval may be established by legislation;”
WHEREAS, the Crow Tribe wishes to protect the natural resources and the interests of
the Tribe;
October 2010 Session
Resolution Approving Fire Management Plan w/Attachments
10.13.10
Page 1 of 3
NOW THEREFORE, BE IT RESOLVED BY THE LEGISLATURE AND THE
EXECUTIVE BRANCH OF THE CROW TRIBE:
Section 1. That the Legislative and Executive Branches of the Crow Tribe hereby
approve the attached 2010-2024 Crow Indian Reservation Fire Management Plan for the
Crow Reservation; and
Section 2. That the Executive Branch is authorized to execute and implement the
Fire Management Plan; and
Section 3. That the Legislative and Executive Branches of the Crow Tribe hereby
reserves the authority to review and make modifications to the plan as economic
circumstances and changing needs require; and
Section 4. It is the Legislative and Executive Branches of the Crow Tribe’s intent to
work with the Bureau of Indian Affairs to refine the Plan to incorporate full consideration
of Tribal priorities and objectives, including possible revisions to take effect prior to the
2011 fire season.
October 2010 Session
Resolution Approving Fire Management Plan w/Attachments
10.13.10
Page 2 0f3
CERTIFICATION
Thereby certify that this Joint Action “APPROVAL OF THE 2010-2024 CROW INDIAN
RESERVATION FIRE MANAGEMENT PLAN” was duly approved by the Crow Tribal
Legislature with a vote of _10 in favor, 6 opposed, and _2 abstained and that a quorum was
present on this _13" day of October, 2010.
\ peaker of the House
‘Tr OL a |
Crow Tribal Legislature
A
Secretary, Crow Tribal Legislature
EXECUTIVE ACTION
Thereby
\ approve,
veto
this Joint Action Resolution granting “APPROVAL OF THE 2010-2024 CROW INDIAN
RESERVATION FIRE MANAGEMENT PLAN?” pursuant to the authority vested in the
Chairman of the Crow Tribe by Article V, Section 8 of the Constitution and Bylaws of the Crow
Tribe of Indians on this = day of Oyember~ , 2010.
Chairman, Executive Branch
Crow Tribe of Indians
October 2010 Session
Resolution Approving Fire Management Plan w/Attachments
10.13.10
Page 3 of 3
A JOINT ACTION RESOLUTION OF THE CROW TRIBAL LEGISLATURE AND THE CROW TRIBAL EXECUTIVE
BRANCH ENTITLED:“APPROVAL OF THE 2010-2024 CROW INDIAN RESERVATION FIRE MANAGEMENT PLAN” |
Bill or Resolution: JAR10-16 Introduced by: Executive Branch Date of Vote:_10/13/2010
Number
Representative: Yes No Abstained
H. Two Leggins xX
V. Pretty Paint xX
C. J. Stewart K
K. Shane x
S. Backbone 4
O. Half, Jr. xX
W. Plainfeather Xx
R. Old Crow, Sr. x
M. Not Afraid xX
V. Crooked Arm Xx
L. DeCrane Xx
C. Goes Ahead xX
B. Hugs x
G. Real Bird, Jr. x
M. Backbone x
D. Wilson x
P. Alden, Jr. x
Secretary of the House
M. Covers Up, Sr. x
Speaker of the House
Totals: 10 6 2
Result of Vote:
Passed Not Passed Tabled Veto-Override
| VA —_ |
Dull ZL Ng \ ~ GND
Manuel Covers Up, Sr. Date Pat Alden, Jr.
Speaker of the House Secretary of the House
Bureau of Indian Affairs, Crow Agency
Fire & Aviation Management
Fire Management Plan
2010-2024
Rae
Si Se AA Cee ea
pia
Fire Management Plan
Approval
Bureau of Indian Affairs, Crow Agency, Crow Agency, Montana
Prepared By: Vay Ff hoe L2.04L0
Dale Glenmore, Fire Management Officer Date
Approval Recommended by:
Frank Merchant — Acting Superintendent Date
Crow Tribe, Crow Agency, Montana
Approved by:
Cedric Black Eagle — Tribal Chairman Date
Bureau of Indian Affairs, Rocky Mountain Regional Office, Billings, Montana
Approval Recommended by:
Caleb Cain — Supervisory Forester Date
Approved by:
Edward Parisian — Regional Director Date
Table of Contents
1. Introduction...
1.1 Purpose ..
1.1.1 Description of Area...
1.1.2 Land Ownership
1.1.3 Resources...
1.1.4 Timber Harvest ..
1.1.5 Cultural and Religious Areas..
2. Policy, Land Management and Partnerships ....
2.1 Fire Policy
2.1.1 25 CFR, 163.28 Fire Management Measures ...
2.1.2 Departmental Manual
2.1.3 Indian Affairs Manual ([AM)
2.1.4 National Fire Plan.
2.1.5 Healthy Forests Initiative
2.1.6 1995 Federal Wildland Fire Management Policy
2.1.7 Government Performance and Results Act (GPRA) of 1993....
2.2 Land/Resource Management Planning (LMP)
2.2.1 Crow Indian Agency, Forest Management Plan (2009-2024)
2.3 Partnerships
2.3.1 Montana Cooperative Fire Protection Agreement......
3. Fire Management Unit Characteristics
3.1 Area-Wide Management Considerations....
3.1.1 Description of Management Strategies by Category 3
3.1.1.1 Category Am No Fireinccsissnccssronnsncess 13
3.1.1.2 Category B — Suppress Unplanned Fires..... 313
3.1.1.3 Category C —- Some Fires Managed for Resource Benefit, with
CORSHGING cmanuummnmmmnnnenrnnnmennamnmnmemrmm ins 14
3.1.1.4 Category D — Most Fires Managed for Resource Benefit, few
Constraints
3.2 Specific Descriptions of Fire Management Units..
3.3 FMU 001 Sage and Grass
3.4 FMU 005 Rangeland — Categor
3.5 FMU 007 Fire Alley —- Category B
3.6 FMU 008 Wolf Mountains North/South — Category C ...
3.7 FMU 011 Pryor Mountains — Category Co...
3.8 FMU 012 Bighorn Mountains East/West — Category.C
4, Wildland Fire Operational Guidance
4.1 Management of Unplanned I[gnitions........
4.1.1 Suppression/Preparedness Actio
411.1 Cooperation. ncccccss
4.1.1.2 Intergovernmental Relationships...
4.1.1.3 Training
411A Initial Attack Resources ssccciasssaseinsnssnsenenneanneenencceess 39
4.1.1.5 Preparedness Levels
4.1.1.6 Size-up and Response Procedures
4.1.2 Incident Management...
4.1.3 Emergency Stabilization
4.2 Burned Area Rehabilitation
4.3 Management of Planned Fuels Treatments
4.4 Prevention, Mitigation and Education
5. Monitoring and Evaluation...
5.1 Severity Monitoring...
5.2 Project-Level Monitoring..
5.2.1 Project Evaluation...
5.3 Fire Plan Strategic Monitoring and Evaluation...
Glossary
Preparers.
Bibliography
Appendices
Appendix A — Map Section
Appendix B — Finding of No Significant Impact (FONS)).....
Appendix C — Environmental Assessment...
Appendix D - Resolution,
Figures and Tables
Figure 1 — Vicinity Map
Figure 2 — Land Ownership Map. ....
Figure 3 — Billings Zone Fire Management Unit(s) Map.
Figure 4 — Crow Fire Management Unit(s) Map...
Figure 5 — East End of the Pryor’s; overlooking the semi-arid prairie...
Figure 6 — Railroad and highway; housing and communities lie in Fire Alley ....
Figure 7 — Wolf Mountains — Top of a ridge looking into Corral Creek....
Figure 8 ~ Pryor’s — Near Crown Butte
Figure 9 — Bighorns — North End looking South into Big Bull Elk Canyon
Figure 10 — Fire Occurrences 1988-2009
Table 1 — Number and acreage of fires by size class, 1988-2009
Table 2 — 2010 Table of Organization for Crow Agency Fire & Aviation a
Table 3 — 2004 RAMS Analysis Comparison of Hazards ......ccccssecssseseseseseesseseesereneeeseeeenseeseeeseas é
ili
US DOI Bureau of Indian Affairs Fire Management Plan
Crow Agency October, 2010
CHAPTER 1 - INTRODUCTION
1.1 Purpose
A Fire Management Plan (FMP) is a strategic plan that describes how a program will manage
planned/unplanned wildland fire and prevention mitigation. While implementing fire
management principles and using the best available science, this program intends to implement a
full range of fire management activities to accomplish resource management objectives,
including interrelated ecological, economic, and social components, and to achieve ecosystem
sustainability. This plan can be revised annually with updated management and policy direction.
In addition this plan will promote the Bureau of Indian Affairs’ mission statement which is to
enhance the quality of life, to promote economic opportunity, and to carry out the responsibility
to protect and improve the trust assets of American Indians, Indian tribes and Alaska Natives.
This will be accomplished through the implementation of this plan.
11.1 Description of Area
The largest reservation in Montana, the Crow Indian Reservation, is located on the Great
Plains physiographic province. It lies mostly in Big Horn County in south central
Montana, bordered by Wyoming to the south. The reservation is approximately 60 miles
wide by 40 miles long, and encompasses approximately 2,226,000 acres, of which
1,491,569 are held in trust by the federal government. The area ranges from mountains to
plains. High lands consist of the Wolf Mountains to the east and the Big Horn and Pryor
Mountains to the south with altitudes ranging from 4500 feet to 9000 feet. Sloping down
northward from the mountains is rolling upland plains, which make up most of the
reservation, and vary in altitude from 3,000 feet to 4,500 feet. Alluvial low lands are
located along the Big Hom River, Little Big Hom River, and Pryor Creek drainage
systems.
US DOI Bureau of Indian Affairs Fire Management Plan
Crow Agency October, 2010
1.1.2 Land Ownership
Crow Indian Reservation land ownership is intermingled consisting of tribal, allotted, and
deeded tracts, commonly described as checkerboard. Also included within the
reservation are Little Bighorn Battlefield National Monument and Bighorn Canyon
National Recreation Area, which are administered by the National Park Service (NPS).
Adding to the complexity, Little Bighorn Battlefield is administered by the Yellowstone
National Park and Bighorn Canyon is administered by Grand Teton National Park.
Though the majority of the reservation lies in Big Horn County, three other Montana
counties and one Wyoming county fall partially within the Reservation boundaries.
Reservation lands also include small portions of Carbon, Treasure, and Yellowstone
Counties in Montana, and Sheridan County in Wyoming. This unique land ownership
and composition complicates the strategic planning of managing wildland fire operations
for the Crow Tribe.
Figure 2 — Land Ownership Map
1.1.3 Resources
The Crow Indian Reservation has a diversity of natural resources ranging from timber,
rangeland, agriculture, water resources, coal, oil, and newly developing natural gas in the
form of coalbed methane. These resources may be impacted by the effects of wildland
fire. The significant resources of timber, rangeland, agriculture and watersheds are those
that have immediate potentially adverse effects from wildland fire.
_ 1.1.4 Timber Harvest
* Please refer to the latest (2009-2024) approved 15-year Forest Management Plan for a
more detailed’ description of timber harvest activity on the Crow Indian Reservation.
a
oa
US DOI Bureau of Indian Affairs Fire Management Plan
Crow Agency October, 2010
1.1.5 Cultural and Religious Areas
Cultural and religious resources on the Crow Indian Reservation encompass a wide range
of tangible and intangible resources that not only include the standard definitions of
archaeological and historical sites, but also sites and areas of broader cultural
significance. The Wolf, Bighorn and Pryor Mountain ranges remain culturally and
spiritually important to the Crow Tribe. These areas continue to be used for fasting,
purification and Sundance purposes. Plant and berry gathering along with wild game
harvesting are continued practices in these areas. The utilization of lodgepole pine for
tepee poles in the Pryor Mountains has occurred for generations. The Crow Tribe has
chosen minimal development for the Bighorn Mountains, which have been designated a
cultural and recreational reserve.
US DOI Bureau of Indian Affairs Fire Management Plan
Crow Agency October, 2010
CHAPTER 2 —- POLICY, LAND MANAGEMENT and PARTNERSHIPS
2.1 Fire Policy
Federal wildland fire policy requires that every area with burnable vegetation must have an
approved Fire Management Plan. The following Federal regulations and policies provide
guidance and direction for creation and scope of this FMP.
2.1.1 Code of Federal Regulations (25 CFR), 163.28 Fire Management Measures
The Code of Federal Regulations (CFR) is an annual codification of the general and
permanent rules published in the Federal Register by the executive departments and
agencies of the Federal Government. CFR 163.28 Fire Management Measures
specifically states:
(a) The Secretary is authorized to maintain facilities and staff, hire temporary labor,
rent firefighting equipment, purchase tools and supplies, and pay for their
transportation as needed, to maintain an adequate level of readiness to meet
normal wildfire protection needs and extinguish forest or range fires on Indian
land. No expenses for fighting a fire outside Indian lands may be incurred unless
the fire threatens Indian land or unless the expenses are incurred pursuant to an
approved cooperative agreement with another protection agency. The rates of pay
for fire fighters and for equipment rental shall be the rates for firefighting services
that are currently in use by public and private wildfire protection agencies
adjacent to Indian reservations on which a fire occurs, unless there are in effect at
the time different rates that have been approved by the Secretary. The Secretary
may also enter into reciprocal agreements with any fire organization maintaining
protection facilities in the vicinity of Indian reservations or other Indian land for
mutual aid in wildfire protection. This section does not apply to the rendering of
emergency aid, or agreements for mutual aid in fire protection pursuant to the Act
of May 27, 1955 (69 Stat. 66).
(b) The Secretary is authorized to conduct a wildfire prevention program to reduce
the number of person-caused fires and prevent damage to natural resources on
Indian land.
(c) The Secretary is authorized to expend funds for emergency rehabilitation
measures needed to stabilize soil and watershed on Indian land damaged by
wildfire.
(d) Upon consultation with the beneficial Indian owners, the Secretary may use fire as
a management tool on Indian land to achieve land and/or resource management
objectives.
US DOI Bureau of Indian Affairs Fire Management Plan
Crow Agency October, 2010
2.1.2 Departmental Manual (DM)
The DM Part 620 Wildland Fire Management, Chapter | General Policy and procedures
states the Secretary of the Interior, through the Directors of the Bureau of Land
Management (BLM), Fish and Wildlife Service (FWS), National Park Service (NPS) and
the Deputy Commissioner of Indian Affairs (BIA) is responsible for wildland fire
management activities of the Department (including such activities when contracted for,
in whole or in part, with other agencies or Tribes) under the statutes cited in 620 DM 1.1.
The objectives of the wildland fire management program in the Department of th
Interior are to:
(a) Provide for firefighter and public safety in every fire management activity.
(b) Make full use of wildland fire, management responses, and prescribed fire both as
a natural process and as a tool that incorporates the role of wildland fire as an
essential ecological process and natural change agent into the planning process.
Fire may also be used as a tool to maintain and restore cultural landscapes or to
dispose of vegetation and debris.
(c) Develop fire management plans, programs, and activities which are based on the
best available science; that incorporate public health and environmental quality
considerations; and support bureau land, natural and cultural resource
management goals and objectives.
(d) Ensure economically viable fire management programs and activities are based on
values to be protected; cost effectiveness; risk management; and land, natural, and
cultural resource management objectives.
(e) Initiate and maintain full international, Federal, Tribal, State, and local
interagency coordination, with the involvement of all parties, to insure
cooperation, and collaboration.
(f) Standardize policies and procedures among Federal agencies and Tribes.
g) In cooperation with other wildland fire management agencies, develop and
implement prevention strategies at the local, regional and national levels.
US DOI Bureau of Indian Affairs Fire Management Plan
Crow Agency October, 2010
2.1.3 Indian Affairs Manual ([AM)
In accordance with the Bureau of Indian Affairs (BIA), Indian Affairs Manual (IAM),
Part 90, Chapter 1 & 2, the Federal Wildland Fire Management Policy requires that every
area with burnable vegetation must have an approved Fire Management Plan, which has
been developed utilizing a National Environmental Policy Act (NEPA), National Historic
Preservation Act (NHPA), and Endangered Species Act (ESA) compliant process. In
addition, the BIA Wildland Fire and Aviation Program Management and Operations
Guide, commonly referred to as the “blue” book, reiterate the requirement for an FMP
and authorize the use of the 2007 Interagency Fire Management Template, updated in
2009. This allows for agencies to develop a collaborative approach in developing an
interagency FMP. :
2.14 National Fire Plan
The National Fire Plan (NFP) was developed in August 2000, following a landmark
wildland fire season, with the intent of actively responding to severe wildland fires and
their impacts to communities while ensuring sufficient firefighting capacity for the future.
The NFP addresses five key points:
(a) Firefighting Assuring that necessary firefighting resources and personnel are
available to respond to wildland fires that threaten lives and property.
(b) Rehabilitation Conducting emergency stabilization and rehabilitation activities
on landscapes and communities affected by wildland fire.
(c) Hazardous Fuels Reduction Reducing hazardous fuels (dry brush and trees that
have accumulated and increase the likelihood of unusually large fires) in the
country's forests and rangelands.
(a) Community Assistance Providing assistance to communities that have been or
may be threatened by wildland fire.
(e) Accountability Committing to the Wildland Fire Leadership Council, an
interagency team created to set and maintain high standards for wildland fire
management on public lands.
2.1.5 Healthy Forest Initiative
The Healthy Forests Initiative (HFI) was launched in August 2002 by President Bush
with the intent to reduce the risks severe wildfires pose to people, communities, and the
environment. By protecting forests, woodlands, shrublands, and grasslands from
unnaturally intensive and destructive fires, HFI helps improve the condition of our public
lands, increases firefighter safety, and conserves landscape attributes valued by society.
(6]
US DOI Bureau of Indian Affairs Fire Management Plan
Crow Agency October, 2010
2.1.6 1995 Federal Wildland Fire Management Policy
The Federal Wildland Fire Management Policy was developed in 1995, and was further
evaluated and updated in a2001 Review. The 2001 review found the 1995 policy
generally sound and found no fundamental flaws.
2.1.7 Government Performance and Results Act (GPRA) of 1993
The Office of Management and Budget (OMB) established the Government Performance
and Results Act (GPRA) of 1993. This act provides for the establishment of strategic
planning and performance measurement in the Federal Government. The strategic goal
for Wildland Fire Management is to conduct fire management practices on Trust lands
consistent with Federal Wildland Fire Policy.
22 Land/Resource Management Planning (LMP)
The dynamics of wildland fire on the landscape and on ecological environments have varied
throughout history. As scientific understanding has grown of the consequences of alternative
options in land management, various regulations and policy have been established and
implemented. This FMP relies upon or incorporates the most recent and current approved
habitat, resource, forest and other land management planning documents.
In 2003 the 107th Congress mandated the use of Fire Planning Analysis (FPA). The purpose of
the FPA system is to provide managers with a common interagency process for fire management
planning and budgeting, to evaluate the effectiveness of alternative fire management strategies
through time, in order to meet land management goals and objectives. FPA reflects fire
objectives and performance measures for the full scope of fire management activities on a larger
geographical level.
2.2.1 Crow Indian Agency, Forest Management Plan (2009-2024)
The 2009-2024 Crow Indian Agency Forest Management Plan has specific goals and
management objectives relevant to fire management:
(a) To give priority to timber management activities in bark beetle infested or high
risk stands.
(b) To protect the reservation from insects and disease in forested areas under timber
management (Wolf and Pryor Mountains) and from unplanned wildfire in all
areas.
(c) To enhanc
(d) Minimize
streams.
e wildlife habitat through timber harvesting and prescribed fire.
impacts to watersheds by controlling management activities near
s
US DOI Bureau of Indian Affairs Fire Management Plan
Crow Agency October, 2010
The Plan’s chosen alternative directs the agency fuels program to perform hazardous
fuels reduction projects consisting of prescribed fire and fuel breaks (and in places,
precommercial thinning) in the three Reservation mountain ranges.
2.3. Partnerships
As aresult of the FPA process, development of this FMP allowed for an interagency approach in
assessing land management strategies and objectives. The extensive work that has been
conducted in the FPA process is an anticipated outcome on how successful land managers can
coordinate across administrative boundaries. This plan was developed as a collaborative effort
by agency Fire and Aviation Management, Forestry, Regional Office staff and Crow Tribe
Executive and Legislative Branches. An interdisciplinary (ID) team approach was utilized to
ensure all disciplines associated with wildland fire are represented.
2.3.1 Montana Cooperative Fire Protection Agreement, and Statewide
Annual Operating Plan.
An annually updated operating plan specifies details of the cooperative fire protection
agreement between the State of Montana Department of Natural Resources and
Conservation, USDA Forest Service Northern Region, Bureau of Land Management
Montana/Dakotas State Office, National Park Service Intermountain Region, Fish and
Wildlife Service Mountain-Prairie Region, and BIA Rocky Mountain Region.
US DOI Bureau of Indian Affairs Fire Management Plan
Crow Agency October, 2010
CHAPTER 3 — FIRE MANAGEMENT UNIT CHARACTERISTICS
3.1 Area-Wide Management Considerations
In 2005 Crow Agency became an interagency partner in the FPA process for the Billings Fire
Planning Unit (FPU), commonly referred to as the Billings zone. Signature authority on the FPU
Charter included the United States Forest Service (USFS), Bureau of Land Management (BLM),
National Park Service (NPS), Bureau of Indian Affairs (BIA), Fish and Wildlife Service (FWS)
and Department of Natural Resource and Conservation (DNRC). The purpose of creating FPA
Fire Planning Units is to support and contribute to the development of landscape scale
interagency fire planning and budgeting to meet the intent of the National Fire Plan, Federal
Wildland Fire Policy, 10 Year Implementation Plan, and other related documents, as well as
direction provided by Congress and OMB in the FY2003 appropriations language. This will be
accomplished through:
(a) Providing subject matter expertise to be incorporated into FPU design and
function.
(b) Developing data sets that address all participating agency needs.
(c) Conducting test analyses to ensure reasonable results.
(d) Ensure consistent application of FPA business rules that affect analysis outcomes.
(e) Provide defined roles and responsibilities for all levels of participating personnel
from line officers to personnel in supporting disciplines.
(f) Ensure timely completion of analysis to meet required planning and budget
submission deadlines.
(g) Ensure consistent implementation is coordinated by all participating agencies.
US DOI Bureau of Indian Affairs Fire Management Plan
Crow Agency October, 2010
As the policy and the ecological dynamics of wildland fire have evolved, the nation’s “megafires” of the 2000’s have also changed the way managers respond to fires. Recognized
departures from historical forest conditions have and may continue to contribute greater burning
intensities than historically experienced. Ifland management is to bring many of these forest
stands into ecological Condition Class regulation, replicating pre-settlement patterns (as desired
by the Crow Reservation 2009 Forest Management Plan), it will be done using wildland fire for
resource benefit, prescribed fire, mechanical treatments, or any of their combination (see
Appendix A for a fire regime condition class map of the Reservation). The forest and range
environments of the Crow Reservation are fire-dependent ecosystems, which have evolved in
association with fire, and will lose their character, vigor, and faunal and floral diversity if fire is
excluded.
The key to effective management is going to involve fire damage risk assessments, and
mitigations to keep fire intensities manageable and fire effects within policy limits. In other
words, managers will fully suppress the fires that threaten the greatest values at risk, but will let
certain fires play their ecological role when fire is predicted to stay within planned prescriptions.
The Crow fuels program will program some areas for multiple fire entries using different fire
intensity levels, while other areas may require mechanical treatments to provide immediate
regulation of risk, due to surrounding values at risk.
Existing Fire Planning Analysis FMUs relate more to broad response areas rather than to
vegetation types that are tied to historical fire behavior. Priority areas within the FMUs reflect
potential fire behavior and the target conditions that management actions will attempt to
reinstate. Response strategies, as with prescribed fire, prevention, and site rehabilitation will be
structured around firefighter safety, target stand conditions, and values at risk:
(a) Suppression response strategies will be based on site priorities that factor in the
ecological target stand condition; values at risk, potential fire behavior and predicted
fire effects. Where fire plays a natural role in the ecosystem, values at risk are low, fire
may have been excluded for a generation, and readmitting fire to the landscape will
result in less severe fire effects from future catastrophic fires, suppression strategies in
some areas will be to manage the fire actively but without putting firefighters
unnecessarily at risk.
(b) Prescribed fire use will conform to management understanding of fire’s role on that site.
Burn plans will detail how it will occur, why, under what conditions, and what the
implications of the prescription are based on, so that effects are mainly beneficial from
a prescribed fire.
(c) Fire prevention efforts will be directed toward human-caused ignitions that pose the
greatest potential to create unacceptable losses.
(d) Fuels management strategies will integrate historical forest stand conditions, prevention
objectives, mutual aid responsibilities, cultural resource objectives, and political
constraints. Strategies will address prevention objectives by modifying fire behaviors.
[10]
US DOI Bureau of Indian Affairs Fire Management Plan
Crow Agency October, 2010
(e) A safe work environment is cornerstone to all Crow Agency Fire and Aviation
Management actions, which will meet all national standards set by the National
Wildfire Coordinating Group (NWCG) as a minimum.
Using statistical data from the Wildland Fire Management Information (WFMI) system covering
a twenty-two year planning period from January 1988 through Dec 2009, Crow Agency actively
suppressed 2,847 wildfires. This averages to 129 fires per year for this time period. These
wildfires burned a total of 120,447 acres. Average annual occurrence by size class is
summarized as follows:
Percent of
Size Class by Acres A mberor Total Number Ble. ws Total Acres
ires of Fires Acres | Acres
A (0.1-0.2 acres) 1,173 41.2 124.5 20.2 144.7
B (0.3-9.9 acres) 1,271 44.6 2,305.8 238.9 2,544.7
C (10-99.9 acres) 295 10.4 8,070.8 596.2 8,667.0
D (100-299.9 acres) 51 1.8 7,246.0 256.0 7,502.0
E (300-999.9 acres) 30 Ll 14,822.9 355.0 15,177.9
F (1000-4999 acres) 18 0.6} 44,7115 44,711.5
G (5000 + acres) 6 0.2 33,330.0 8,400 41,730.0
No control acres
reported z a va
Total 2,847 100} 110,613.1 9,864.7 120,477.8
Table | — Number and acreage of fires by size class, 1988-2009.
Goals and objectives common for all FMU’s include:
(a) Improve ecosystem health and maintain or restore the range of ecological
conditions in which native aquatic, vegetative, terrestrial and special status
species evolved.
(b) Protect, maintain, preserve, and/or restore habitats necessary for the conservation
of species, and the ecosystems upon which they depend, to maintain viable and
diverse populations of native plant, animal, and aquatic species including special
status species.
(c) Protect cultural and paleontological resources.
(d) Reduce fire risk to Wildland Urban Interface (WUT) communities. Use fuels
reduction methods to create defensible areas which coincide with the natural fire
regime as close as reasonably feasible.
Desired future conditions common for all FMU’s include:
(a) Ensure uplands maintain their biological and ecological conditions.
(b) Ensure riparian and wetlands maintain proper functioning condition.
(c) Water quality meets Tribal and State standards.
(d) Air quality meets Tribal and State standards.
(e) Fuel loadings and timber stocking are near normal or historical levels.
US DOI Bureau of Indian Affairs Fire Management Plan
Crow Agency October, 2010
Environmental constraints that benefit specific species may affect fire management on the
Reservation. While no populations of threatened or identified species have been specifically
located on the Crow Reservation in 2009, several potentially T&E species with habitat on the
Reservation may affect management considerations. The greater sage grouse requires unbumed
sage habitat, and the mountain plover requires shortgrass prairie, for example. Fire management
decisions for specific incidents will take into account the current best management practices for
habitat restoration or preservation for species such as these, when their legal or scientific
citations direct that their habitat preservation become a primary objective of land management.
US DOI Bureau of Indian Affairs Fire Management Plan
Crow Agency
October, 2019
3.11
Description of Wildland Fire Management Strategies by FMU Category
The five Fire Management Units on the Crow Indian Reservation are categorized to
determine the opportunity to use varying fire management strategies. The defined criteria
are as follows:
3.1.1.1 Category A (C-A) No fire — In these areas fire is undesirable or not
historically influential, due to nearby human development or sensitive cultural
areas, or due to the absence of fuels to support fire. At this time, no FMU’s have
been established as Category A areas. In these areas. if they were identified on
the Reservation, mitigation and suppression is required to prevent direct threats to
life and property, fire has not played a significant role in the maintenance of the
ecosystem, and fire can no longer be tolerated without significant loss because of
human development.
Fire Mitigation Considerations: Emphasis should be focused on prevention,
detection, and rapid suppression response utilizing techniques that will reduce
unwanted ignitions and threats to life, property, natural and cultural resources.
Fire Suppression Considerations: All wildland fires will be actively suppressed.
Prescribed fire is not allowed. Suppression tactics, such as backfiring or burnouts,
may be employed to mitigate an immediate threat to firefighter or public health
and safety. Suppress all fires in accordance with management objectives based on
current conditions and fire location.
Fuels treatment considerations: Non-fire fuel treatments are utilized. Unit costs
for prescribed fire would be too prohibitive to implement efficiently.
3.1.1.2 Category B (C-B) Suppress unplanned fires — These are areas where
wildland fire is not desirable because of current conditions, but the use of
prescribed fire may be acceptable to achieve resource objectives. Crow FMUs of
Fire Alley and Rangeland have been established as Category B. In these areas,
fire plays a natural role in many functions of the ecosystem. However, these are
areas where an unplanned ignition will have negative effects without mitigation or
suppression.
Fire Mitigation Considerations: Prevention/mitigation programs minimize the
impact of unplanned ignitions and subsequently reduce the threat to life, property,
natural and cultural resources.
Fire Suppression Considerations: Fire suppression of unplanned fires is
aggressive, especially in areas with direct threats to life and property. Suppress
wildfires in accordance with management objectives, based on current conditions
and fire location. Strategies will be tailored to address areas where structures
and/or improvements are present, plant communities are at risk from the
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US DOI Bureau of Indian Affairs Fire Management Plan
Crow Agency October, 2010
ecological effects of fire due to current conditions/time of year, or other
ecological constraints.
Fuels Treatment Considerations: Fuel hazard reduction is a priority to mitigate
potential risks and associated loss. Prescribed fire and non-fire fuel treatments
will be utilized to reduce the hazardous effects of unplanned wildland fire.
Treatments may consist of multiple non-fire treatments before the use of fire will
be considered. Unit costs for prescribed fire may be high due to mitigation
measures and number of resources required.
3.1.1.3 Category C (C-C) — some fires managed for resource objectives, with
constraints — Here wildland fire may be desirable under certain conditions, but
constraints exist. The FMUs of the Wolf Mountains, Bighorn and Pryor
Mountains have been established as Category C. In these areas, fire is a desirable
and historical component of the ecosystem, however, ecological, social or
political constraints must be considered, that could require point protection,
limited or other perimeter suppression strategies. These constraints could include
air quality, threatened and endangered species, or wildlife habitat considerations,
as well as grazing and timberlands.
Fire Mitigation Considerations: Projects should mitigate potential threats to manmade and/or resource values before ignitions occur, and/or reduce the effects
upon resource values of undesirable ignitions.
Fire Suppression Considerations: Considerations of human health and safety,
along with critical ecological and resource constraints, are considered in
etermining fire management strategies on a case by case basis. Areas in this
category would generally receive lower suppression priority in multiple wildland
fire situations than would areas in A or B Category FMU’s.
Fuels Treatment Considerations: Prescribed fire and non-fire fuels treatments
may reduce hazardous effects of unplanned wildland fire. Significant prescribed
fire activity would be expected to help attain desirable resource/ecological
conditions. Prescribed fire plans are generally non-complex. When possible, fire
protection and resource benefits are achieved concurrently.
3.1.1.4 Category D (C-D) — most fires managed for resource benefit, with few
constraints — These are areas where wildland fire is desirable and there are few or
no constraints for its use. No FMUs have been put in Category D, although the
FMUs of the Pryor and Bighorn Mountains almost fall in this category. Here
wildland fire for resource benefit and prescribed fire are used to achieve desired
objectives such as to improve ecological diversity and watershed conditions
and/or to reduce hazardous fuels. Human-caused fires are few.
[14]
US DOI Bureau of Indian Affairs Fire Management Plan
Crow Agency October, 2010
‘Fire Suppression Considerations: These areas offer the greatest opportunity to
take advantage of the full range of options available for managing wildland fire.
Health and safety constraints will apply. Areas in this category would be the
lowest suppression priority in a multiple fire situation.
Fuels Treatment Considerations: There is generally less need for the mechanical
pre-treatment of fuels in category D. Prescribed fire for fuel hazard reduction is
not a priority except where there is an immediate threat to public health and
safety. Ifa treatment is necessary, both fire and non-fire treatments may be
utilized, as allowed by the Forest Management Plan. Prescribed fire to obtain
desired resource/ ecological condition(s) is appropriate.
3.2 Specific Descriptions of Fire Management Units
Fire Program Analysis (FPA) objectives suggest that agencies within a FPA zone share common
Fire Management Units (FMUs), when local ecological zones and land uses cross jurisdictional
boundaries. Within the Billings FPA zone, the Crow Reservation shares FMU O11, Pryor
Mountains, and FMU 012, Bighorn West, with cooperating agencies including the USFS, NPS,
BLM, and Crow Tribe.
Five subdivided Fire Management Units (FMUs) have been delineated on Crow Reservation
lands based on common ecological types, communities and land uses, and fire regimes. They
occasionally have FMU-specific management objectives, desired conditions, and guidelines,
described below. A sixth FMU (FMU 001, Sage & Grass), lies in the Ceded Strip northeast of
the present-day Reservation. Fire responses within each Fire Management Unit (FMU) will be
based on strategic assessments of:
(a) Firefighter and public safety.
(b) Values at risk as defined by this FMP.
(c) Current and predicted fire weather.
(d) Current and predicted fire behavior.
(e) Risk assessment that includes incident complexity.
(f) Organizational structure and preparedness levels.
(g) Results of WFDSS analysis.
US DOI Bureau of Indian Affairs Fire Management Plan
Crow Agency October, 2010
Goals and objectives common for all FMU’s include:
(e) Improve ecosystem health and maintain or restore the range of ecological
conditions in which native aquatic, vegetative, terrestrial and special status
species evolved.
( Protect, maintain, preserve, and/or restore habitats necessary for the conservation
of species, and the ecosystems upon which they depend, to maintain viable and
diverse populations of native plant, animal, and aquatic species including special
status species. ,
(g) Protect cultural and paleontological resources.
(h) Reduce fire risk to Wildland Urban Interface (WUD communities. Use fuels
reduction methods to create defensible areas which coincide with the natural fire
regime as close as reasonably feasible.
Desired future conditions common for all FMU’s include:
(f) Ensure uplands maintain their biological and ecological conditions.
g) Ensure riparian and wetlands maintain proper functioning condition.
(h) Water quality meets Tribal and State standards.
(@) Air quality meets Tribal and State standards.
(j) Fuel loadings and timber stocking are near normal or historical levels.
3.3. FMU 001 Sage and Grass
The “ceded strip” is no longer part of the Reservation proper, lying northeast of Hardin, Montana
northward across the Yellowstone River. It is approximately 1,137,500 acres of lands now owned
mainly by non-Tribal members, which was part of the Crow Reservation until 1903. About 200
scattered allotments held in trust for Tribal membersremain in the area, and the BIA manages
This is a copy of a public record, reproduced as it was published. It is not legal advice, and it may not be the version a court would rely on. Check the official source before you cite it.