Science Policy
第一天项目

Wildland Fire Policy Recommendations

04.24.23 | 62 min read

火是一个自然而正常的生态过程，但是今天的大火有强度生长and cost, causingmore destruction to people and property。A changing climate and our outdated policy responses正在扩大这些负面影响。

The federal government has many responsibilities for wildland fire management in the United States. Federal entities manage public lands where prescribed burns and wildfires occur, support wildfire response, and conduct research into fire’s impacts. Recognizing that this work will only grow, theBipartisan Infrastructure Lawauthorized the荒地消防和管理委员会to develop and delivera comprehensive set of new policy recommendationsto Congress focused on how to “better prevent, manage, suppress, and recover from wildfires.”

About the Wildland Fire Policy Accelerator

响应委员会呼吁投入, the Federation of American Scientists launched aWildland Fire Policy Acceleratorto source and develop actionable policy ideas aimed at improving how we live with fire. This effort is in partnership withCOMPASS, theCalifornia Council on Science and Technology (CCST)， 和保护X实验室, who bring deep expertise in the accelerator topics and connections to interested communities.

参与者来自学术界，私营部门，非营利组织和国家实验室，并在火灾生态，林业，建模，气候变化，消防情报，文化燃烧等方面带来了专业知识。加速器遵循FAS的接近Day One Project在几个月内提供结构化培训，支持和政策专家的反馈，以帮助参与者完善他们的政策思想。在加速器的第二阶段中，这些贡献者的一部分将在FAS网站上发布完整的备忘录，并提供有关其政策建议的更多信息。

Table of Contents

创建联邦赔偿基金，以涵盖文化和开处方的意外损害
Directly fund Tribes to create and implement land stewardship initiatives
在《国家环境政策法案》（NEPA）中为文化燃烧创建一个分类排除
Legally define “Cultural Fire Practitioner” and “Cultural Fire” to encourage Cultural Burning
Expand the scope and funding of the Tribal Forest Protection Act of 2004
Reduce federal subsidies for development that might exacerbate fire risk
Make smoke management a core goal of wildland fire management
Foster smoke-ready communities to save lives and money
Build data infrastructure to support decision making based on smoke hazards
Consider modifying the Clean Air Act to incentivize increased use of beneficial fire
Support strategic deployment of community resilience hubs to mitigate smoke impacts and other hazards
通过实时可操作的消防情报来拯救生命，财产和生态系统
Advance the predictive science of fire ecology and forest resilience
Develop next-generation fire and vegetation models for a changing climate
Expand capacity for effective collaboration between scientists and resource managers to inform forest management
发起一项开放灾难数据计划，以增强野火和相关危害的全部国家弹性
开发一个联邦框架来衡量和评估野火的社会生态影响
Improving safety and efficiency of wildfire suppression with advanced UAS
Establish a Tribal ranger program to fund permanent land stewardship opportunities for Tribal communities
扩大野火缓解和健康森林的军团计划
Invest in worker-led industries for whole-of-community wildfire resilience
Invest in workforce development that empowers Indigenous experience and knowledge and supports marginalized communities
Directly Fund Tribes to Create and Implement Land Stewardship Initiatives

风景和社区

创建联邦赔偿基金，以涵盖文化和开处方的意外损害

克里斯·阿德兰（Chris Adlam），俄勒冈州立大学博士

For millennia, the forests of the West were fundamentally shaped by Tribal use of fire, with different Tribes employing unique cultural fire traditions. Unfortunately, Indigenous Cultural Fire Practitioners are now dissuaded from treating both private and public forests with cultural burns because they fear being held liable for the cost of damages in the rare cases in which cultural fires accidentally escape their planned bounds. To allow Cultural Fire Practitioners to work to restore our forests, the federal government must protect them from being held personally liable for the risks of the public service that they are performing. Similar programs arebeing proposed for prescribed fire;文化燃烧应受到任何创造基金的保护和受益。

国会应建立和资助联邦文化和规定的烧毁赔偿基金，以鼓励野火预防措施，并保护消防从业者和土地所有者免受负责任地进行的文化或处方烧伤所造成的损失，这些燃烧范围超出了预期的范围。

Prescribed and cultural burning, in tandem with other treatments, are needed to reduce fuel loads and restore the health of forests that are relied upon for recreation, industry, and drinking water. Fuel treatment is also essential to reducing the cost of catastrophic wildfires, which cost the United States an estimated $14.5 billion dollars in damages and emergency response efforts from 2021 to 2022.

Across the country, prescribed burns have empirically been overwhelmingly safe. According to Chief Randy Moore of the US Forest Service,over 99.84% of prescribed fires on USFS land occur as planned。In a separate review of prescribed burns in the Southern Great Plains, researchers found similar findings thatless than 1% of prescribed burns escape。Similar studies have not been conducted to analyze the empirical safety cultural burns, but surveys of relevant research did not uncover an example of an escaped cultural burn. However, the fact that risk cannot be completely eliminated weighs on practitioners and decision-makers, restricting their use of controlled burning. In the event that damages result from a burn, the Fund would seek to minimize the disruption caused by these damages by ensuring that all affected parties would be quickly and fully compensated. By creating this funding structure, landowners would no longer be dependent on individual acts of Congress to receive compensation, as victims of theHermit’s Peak/Calf Canyon Firedid.

在过去的一年中，各州在观察到支持消防人员的必要性后开始创造类似的资金。加利福尼亚最近创建了规定的火灾索赔基金and funded it with $20 million. However, a federal fund is needed to provide coverage on a larger scale, with a scope and financial scale that is not possible for individual states.

Recommendations

To ensure that Cultural Fire Practitioners across the nation are covered, Congress should consider the following actions:

We recommend that Congress consider FEMA as the primary administrator of the Fund because it administers Fire Prevention and Safety (FP&S) Grants, which are part of the Assistance to Firefighters Grants (AFG) program, and because of its post-fire disaster assistance mission. The USDA Forest Service or the Department of the Interior are other potential administrators of the Fund. To encourage state investment, the Fund could require matching funds from states after a certain amount.

The Fund could be paired with the development of regionally specific definitions of‘Cultural Fire Practitioner.’These definitions of Cultural Fire Practitioners should be developed in processes led by Tribal Nations and organizations. Care should also be taken to ensure that Cultural Fire Practitioners can access the Fund without being subject to undue requirements while burning – requirements that detract from their cultural traditions or add an unmanageable regulatory burden to their work.

To further protect Cultural Fire Practitioners as they carry out vital public services, Congress could also provide Cultural Fire Practitioners with coverage under theFederal Torts Claims Act, similarly to how Tribal contractors, employees, and volunteers are classified as federal employees for the purpose of FTCA coverage. In the past, Tribal medical or law enforcement personnel have received coverage after taking over programs previously administered by the U.S. Department of Health and Human Services or the Bureau of Indian Affairs. As policy reforms allow Tribal Cultural Fire Practitioners to practice cultural burns with less interference from the BIA, FTCA coverage would become increasingly beneficial and necessary.

By creating this Fund, Congress would support fire practitioners working on the frontlines of the crisis and the communities most threatened by fire.

Directly fund Tribes to create and implement land stewardship initiatives

加利福尼亚大学戴维斯分校的Nina Fontana博士

Across the United States, Tribal nations and organizations have the knowledge and will to lead cultural and prescribed burns. Unfortunately, they are consistently limited by (a) insufficient funds, and (b) burdensome regulatory requirements that often prove overly burdensome to comply with. These two issues are connected. Tribal practitioners are often unable to obtain federal grants for land stewardship purposes because they do not have the capacity to find and apply for them, to compete with state agencies and organizations in the application process, and to comply with the grant requirements, which can conflict with Cultural Fire traditions in fundamental ways.

Congress should appropriate discretionary funds directly to Tribal nations and Tribally-led organizations for fire hazard reduction in order to decrease the administrative capacity needed for Tribes to compete for grants. The funds will be dispersed by regional Tribal liaisons, who will gather and utilize input from local actors to direct grants.

部落政府和组织需要直接赠款，以应有的方式行使其主权。When Tribal governments and organizations are provided with adequate funding and are able to direct its usage, Cultural Fire Practitioners (CFPs) are able to design cultural fire projects that fit their unique traditions and local plant communities contained within their lands. In addition, by giving Tribes greater discretion over funds, the federal government would a) decrease the regulatory burden on Tribes, and b) provide greater recognition of cultural burning as a uniquely valuable form of land restoration and place-based knowledge, instead of categorizing the practice as an often-overlooked subset of prescribed burning.

最重要的是，直接资金将使部落政府和组织能够将关键能力从时间密集型的行政任务转移到管理其祖先土地上。部落可以扩大消防从业者的劳动力，治疗更大的土地领域，并更好地保护重要的自然和文化资源。

Recommendations

We recommend that Congress:

By drawing upon the expertise of communities and Cultural Fire Practitioners, the Tribal liaisons would be able to target funds to groups and landscapes that have the greatest need, ensuring that federal resources are utilized in an effective manner each year.

It is time for the federal government to recognize the deep expertise of Tribes in fire management. By giving Tribes greater influence in determining the use of funds for preventative and mitigative activities, Congress would bring funding structures in line with the rightful sovereignty of Tribes, and it would protect communities and natural resources across the country by clearing the path for more beneficial fire.

在《国家环境政策法案》（NEPA）中为文化燃烧创建一个分类排除

加利福尼亚大学戴维斯分校的Nina Fontana博士;克里斯·阿德兰（Chris Adlam），俄勒冈州立大学博士

最初的陈述目的之一National Environmental Policy Act1969年是“促进努力将阻止or eliminate damage to the environment and biosphere and stimulate the health and welfare of man.” Cultural and prescribed burning directly contribute to this goal. Unfortunately, current interpretations of NEPA require Cultural Fire Practitioners (CFPs) to undertake onerous Environmental Impact Statements before burns on federal or Tribal trust lands, which often prevent Tribes from even attempting to burn in these locations. Because Tribal lands are held in trust by the federal government, CFPs must also comply with NEPA regulations that were designed to govern federal actions. This arrangement limits Tribal sovereignty and imposes an undue burden.

To bring the implementation of NEPA in line with its purpose, NEPA should recognize cultural burning as part of the background condition of our natural environment here in the United States. Tribes haveutilized these cultural burning practices for centuries, even millenia，管理美国境内容易发生的景观taking measures to protect ancient wildland urban interfaces在西南。通过这么悠久的历史，文化燃烧从根本上影响了我们当今我们认为是人类环境。因此，文化燃烧应归类为绝对排斥。

最新实施NEPA的指南包括“规定燃烧以减少天然燃料积累并改善植物活力”的绝对排除，只要该项目不需要使用除草剂或低标准道路建设的1英里以上（DOE NEPA Guidelines）。Additionally, the Infrastructure Investment and Jobs Act categorically排除“establishing and maintaining linear fuel breaks” for the purpose of wildfire risk mitigation under specific circumstances.

The following recommendations represent several pathways for Congress to encourage cultural burning. By implementing one or all of these measures, Congress would begin the process of recognizing burning as a sovereign right for Tribes (similar to hunting and plant gathering) and therefore exempt from permitting.

Recommendations

对于这些目的，国会应考虑：

通过提出这些建议，国会将实施《国家环境政策法》符合其最初的目的，并对全国社区的地面产生积极影响。

Legally define “Cultural Fire Practitioner” and “Cultural Fire” to encourage Cultural Burning

Raymond Gutteriez, Member of Wuksachi Band of Mono Indians

Cultural Fire Practitioners (CFP) have the knowledge, experience, and willingness to help lead the restoration of more sustainable fire regimes to their ancestral homelands. However, they are currently dissuaded from carrying out cultural burns for a variety of reasons including fear of liability, burdensome regulations, burn bans, and resource constraints. In addition, Cultural Fire Practitioners receive limited support from the federal government for their important work.

As an important first step in encouraging cultural fire, Congress should direct the US Department of Agriculture (USDA) and the US Department of the Interior (DOI) to develop regionally-specific definitions of ‘cultural fire’ and ‘Cultural Fire Practitioner’ through a process led by Tribal governments.

Currently, the federal government does not adequately recognize cultural fire, despite its deep-rooted traditional significance for Tribal Nations and its potential benefits for forest and wildfire management across the country. Because of thislack of recognition and other barriers,许多cfp无法履行cultural fire traditions. Those that have continued to implement cultural fire have had to operate with minimal federal support and with higher personal risk. In addition, they have been forced to significantly alter their traditions and practices to fit existing legal processes and definitions that were designed for prescribed burns. These factors have combined to make cultural burning prohibitively difficult to implement on federal, tribal, and state lands.

Recommendations

为了提供启用和支持文化燃烧所需的适当法律框架，国会应该：

These definitions will create a legal foundation that can be used to expand the role of cultural burners and ease restrictions, in a manner similar to that of California’s own legislation defining cultural burning (CA SB 332; CA SB 926; CA AB 642). In tandem with adopting a formal definition, California implemented a gross negligence standard that limited the financial liability of CFP who take appropriate precautions before a fire.

Federal agencies can explore opportunities to use the definitions to support cultural burning. For example, federally recognized CFPs could be provided with exemptions from having to obtain formal National Wildfire Coordinating Group (NWCG) qualifications and/or from the National Environmental Policy Act (NEPA) environmental assessment process. The federal government could also support creation of an easily accessible federal indemnity fund that provides support to cultural burners.

By codifying these definitions, the federal government would take a key step in elevating the visibility and status of Cultural Fire Practitioners as key partners in land stewardship and wildfire risk reduction and management.

Expand the scope and funding of theTribal Forest Protection Act of 2004

Raymond Gutteriez, Member of Wuksachi Band of Mono Indians

Under theIndian Self-Determination and Education Assistance Act of 1975和Tribal Forest Protection Act (TFPA) of 2004, Tribes are able to propose and execute projects (called 638 projects) on USFS-managed and BIA-managed land which (i) borders or is adjacent to Indian trust land, and (ii) poses a fire, disease, or other threat to Tribal forest or rangeland or that otherwise requires land restoration activities. Unfortunately, 638 projects are rarely proposed or implemented due in large part to lack of funding and its limited scope of only including tribes that possess land adjacent to federally managed lands.

Congress should appropriate dedicated funding for ‘638’ projects and expand the range of the TFPA to include the ancestral homelands of Tribal Nations.

The aforementioned 638 law was enacted to promote “maximum Indian participation in the Government,” but it fails at this goal in its current form. The initiative has been hampered by the fact that “no specific funding was appropriated or authorized for 638” projects (USFS）。Instead, funding is expected to be obtained from other sources of funds for activities on federal lands, which often require prohibitive amounts of administrative burdens for Tribes to compete for and obtain. Additionally, many Tribes are ineligible to participate in 638 projects because they do not possess lands that are adjacent to national forests, even though those national forest lands are part of their ancestral homelands.

Recommendations

We recommend that Congress consider:

In addition, these changes can be paired with other efforts to expand Tribal authority and ability to plan, implement, and review prescribed and cultural burns on federal lands.

Reduce federal subsidies for development that might exacerbate fire risk

Max Moritz, Adjunct Professor, UC Santa Barbara

Federal spending on wildfire suppression hasballooned在过去的四十年中。尽管做出了这些努力，但野火造成的财产损失仍在继续升级, devastating communities and robbing tens of thousands of people of treasured homes, businesses, and gathering places.

This is in part because more and more Americans are living and working adjacent to wildlands, where they are more vulnerable to wildfire impacts. In 2020,4.5 million homeswere located in areas of “high or extreme wildfire risk.” To make matters worse, fires on state, local, and private land havedoubledin size (on average) since 1991. While decisions about land use and urban planning are made locally, there are important opportunities for crucial guidance at the federal level to help mitigate harm to communities.

国会应指导机构确定联邦资金在何种程度和通过哪些机制来补贴开发的方式，以使火灾风险永久化。

Where and how we build our communities caninfluence fire probabilitiesin the broader region surrounding a particular development, crossing administrative boundaries and even state lines.

Money from federal agencies supports development of homes and related infrastructure. Failing to identify and address when and how federal funds may be subsidizing development in wildfire hazard risk areas will continue to exacerbate social and economic losses.

The federal government should investigate to what extent and through which programs it is subsidizing development in a manner that exacerbates fire risk. Using this information, Congress and agencies can take action through existing mechanisms to support local and regional planning that is bothfire-resilientand equitable.

Recommendations

国会应该：

使用此信息，国会可以考虑采取以下一项或多项措施是否适合：

Should the federal government choose to take action on any of the recommendations above, there are important considerations Congress and agencies must keep in mind.

Public Health and Infrastructure

Make smoke management a core goal of wildland fire management

Alistair Hayden, Assistant Professor of Practice, Department of Public & Ecosystem Health, Cornell University

荒地大火的有毒烟雾远远超出了容易发生的地区，造成的人数比火焰本身多得多，并破坏了数以千万人的生活。尽管如此，野火烟雾经常被报告并与其他野火影响分开进行。

Congress should establish smoke management as a core goal of wildland fire management and create institutional capacity to achieve that goal.

The2014 National Cohesive Wildland Fire Management Strategydescribes a vision for the century: “To safely and effectively extinguish fire, when needed; use fire where allowable; manage our natural resources; and as a Nation, live with wildland fire.” Significant research conducted since the publication of the Strategy indicates that wildfire smoke impacts people across the United States, causing10,000 deathsandbillions of dollarsof economic losses annually. Smoke impactsexceed它们相应的火焰影响；然而，野火战略和funding在很大程度上专注于火焰及其影响。

为了确保野外大火的所有影响，包括烟雾，有效，全面地解决，国会应采取行动将野火烟雾管理作为野火管理的核心目标。

To ensure that wildland fire smoke is considered as a core wildland fire hazard, Congress should consider amending relevant legislation to specifically account for smoke.

For example, Congress could:

Current interagency wildfire leadership groups occasionally consider smoke in the context of wildland fire impacts and management. To ensure wildfire strategy discussions always include modern smoke-management considerations, these groups should include agencies with expertise on smoke data and impacts (e.g., Environmental Protection Agency, Center for Disease Control, National Aeronautics and Space Administration).

Congress should therefore:

  1. Amend the Bipartisan Infrastructure Law Sec. 70203(b) and the FLAME Act Sec. 3 to include smoke-expert agencies in development of the National Cohesive Wildland Fire Management Strategy.
  2. Pass new policy adding smoke-expert agencies to wildfire-policy collaborations, including the国家机构间消防中心，National Wildfire Coordinating Group， 和theWildland Fire Leadership Council.

To succeed, Congress should also allocate funding for smoke management programs described in companion suggestions (here and here).

Foster smoke-ready communities to save lives and money

Alistair Hayden, Assistant Professor of Practice, Department of Public & Ecosystem Health, Cornell University

In the US, more and more people are being exposed to wildfire smoke—27次more people experienced extreme smoke days than a decade ago. Wildfire smoke poseshigher risksto outdoor workers, unhoused individuals, children, older adults, and people with diabetes or heart disease.

The federal government can equitably save lives and money by helping communities prepare for, identify, and respond to smoke events.

Recommendations

Congress should designate some of the annual $6+ billion in wildfire management to create funding for households and public spaces to improve indoor air-quality during heavy smoke.

帮助社区prepare for smoke events:

To ensure communities are able toidentify potentially deadly smoke events, Congress should:

To provide communities withsupport needed to act during smoke events,国会应该：

Build data infrastructure to support decision making based on smoke hazards

康奈尔大学实践助理教授Alistair Hayden；加利福尼亚科学技术委员会高级科学官Teresa Feo

National spending on fire suppression exceeds $4 billion in the fiscal year 2023 funding bill, while less than1000万美元is allocated for smoke management. This 600:1 funding ratio for fire compared to smoke is misaligned to the 1:1 ratio of economic impacts and1:100 ratio of fire to smoke deaths。

Data infrastructure critical for minimizing these smoke-related hazards is largely absent from our firefighting arsenal.

Congress should take action to better leverage existing smoke data in the context of wildland fire management and fill crucial data infrastructure gaps to enable smoke management as a core part of wildland fire management.

已经收集了一些烟数据，包括从机构间野外消防空气质量响应计划and retrospective smoke emissions totals from the Environmental Protection Agency (EPA) in theNational Emissions Inventory(NEI). However, these smoke impacts are considered separately from flame impacts (e.g., structures burned), and are left out of broader wildfire strategy. New authoritative realtime smoke-data tools need to be created and integrated into wildfire management strategy.

Recommendations

To better track health impacts of wildfire smoke,国会应该：

To better integrate smoke data with other fire data,国会应该：

To enable the consideration of smoke-related health impacts in wildland fire management,国会应该：

The suggested additions would improve national technical ability to increase smoke-related safety, thereby saving lives and reducing smoke-related public health costs.

Support strategic deployment of community resilience hubs to mitigate smoke impacts and other hazards

Lee Ann Hill, Director of Energy and Health, PSE Healthy Energy

Exposure to wildfire smoke can havesevere impacts关于人类健康，包括更高的呼吸道问题风险，心脏病发作，中风和过早死亡。一个工具社区可以用来建立对烟雾和其他威胁人类健康危害的弹性。弹性枢纽是室内社区空间，旨在解决整体社区脆弱性并促进公共安全，安全和福祉。弹性枢纽还可以通过提供清洁室内空气（包括烟雾紧急情况）的紧急情况来支持社区。

The federal government can foster holistic community resilience to wildfire smoke impacts and other hazards by supporting the development of community resilience hubs.

公共卫生指导和气候适应政策应解释以下事实：许多社区将面临多种危害，有时是同时发生的。政策制定者应考虑缓解方法，而不是解决特定的暴露（例如野火烟雾或极端热量），而应考虑缓解方法，这些方法将建立准备和承受多种危害的能力，包括与1）缓解策略（例如，规定的火烟），，2）极端天气事件（例如，烟雾，极端热量）和自然灾害，3）停电。政策制定者可以优先考虑减少有害烟雾曝光的政策干预措施，同时还扩大了更广泛的社区韧性，以最大程度地利用每花费的美元的人类健康益处。

Community resilience hubs equipped with heating, ventilation, and air conditioning and powered by distributed clean energy resources can reduce harmful smoke exposures while expanding broader community resilience amid extreme weather events, natural disasters, and grid outages. Local governments across the United States and Canada have既定的弹性中心专注于灾难和应急响应；飞行员为更全面地建立弹性的努力正在进行中Baltimore, MarylandandNorthern California。

The proposedWildfire Smoke Emergency Declaration Act of 2021focuses on wildfire smoke more singularly, including provision of “resources for establishing smoke shelters, air purifiers, and additional air monitoring sites” upon each declaration of a smoke emergency. Federal efforts to reduce the human health cost of wildfire smoke should consider how investment can effectively mitigate multiple hazard exposures, reducing inefficiencies stemming from focusing singularly on wildfire smoke alone and redeploying resources during each emergency smoke declaration. Whileevidence suggests弹性枢纽在社区主导时最有效，联邦政府可以在多危险环境中支持这些社区弹性工具的扩散。

为了支持这些努力，国会可以采取以下步骤：

Resilience hubs can reduce hazard exposures and strengthen community-level resilience to provide support during extreme weather events, natural disasters, and grid outages. Resources to support interagency coordination, distributed energy resource deployment, and data collection efforts can bolster and inform future and ongoing resilience hub planning and implementation efforts.

Consider modifying the Clean Air Act to incentivize increased use of beneficial fire

Alistair Hayden, Assistant Professor of Practice, Department of Public & Ecosystem Health, Cornell University; Susan Prichard, Research Scientist, University of Washington

最近的wildfires have spewed so much toxic smoke across the country that decades of life-saving air-quality improvement under the Clean Air Act (CAA) have beenreversed在许多州。CAA无意间通过拒绝在减轻灾难性野火所需的尺度上使用有益的火力来有助于这种逆转。国会应修改CAA，以激励有益的火灾，处方烧伤，文化燃烧和野火，以支持减轻无管理的野火所需的尺度上的使用。

尽管有益的火灾会产生烟雾，但它是减少整体烟雾输出的最有效手段，因为它可以减轻未管理的野火。计划在特定的天气和燃料条件下积极应用有益的火灾，以最大程度地减少对社区的影响，而未受管理的野火是计划外的事件，通常在极端条件下燃烧，经常持续数周。

CAA旨在通过减少包括野火烟雾在内的空气污染来挽救生命和金钱，但目前阻止有益的大火将整体烟雾量最小化。来自计划外野火的烟雾的日子通常被视为CAA不包括司法管辖区污染限制的“特殊事件”。相比之下，有益的大火很少有资格，因此他们的烟雾可以使管辖权超过其污染限制。因此，司法管辖区限制了有益的火灾以达到污染限制，无意间防止在所需的规模上使用火灾。因此，当前的CAA政策将烟雾排放从有益的火灾转移到计划外的野火，这对危险的烟雾影响不成比例。

To incentivize more beneficial fire while leaving intact other life-saving provisions of the CAA, Congress should:

Policy encouraging beneficial fire supports choosing when and where smoke happens, reducing the frequency of even more dangerous unplanned fires and the overall smoke hazard. The CAA should incentivize beneficial fire; doing so will save lives and money by reducing air pollution—exactly its intended function.

科学，数据和技术

通过实时可操作的消防情报来拯救生命，财产和生态系统

Tim Ball, Fireball Information Technologies; Carlton Pennypacker; University of California, Berkeley; Harry Statter, Frontline Wildfire Defense

The authors are part of a research group,FUEGO, that designed a satellite to bridge the intelligence gap described in this proposal.

面对更激烈的大火和肿胀的野生世界界面，确保我们的生活，社区和生态系统，要求政府和公民使用最可靠的情报来源共同努力。紧急管理机构，消防员，公用事业和公众需要对火灾何时开始，火灾的定位，强度的变化以及它们在何处蔓延的实时理解。

国家野外火灾协调集团（NWCG）认识到这是一个严重的未满足的情报需求。创建一个不间断的，高节奏和低的延迟能力来绘制火灾活动，将在本地和国家规模上实时支持响应。情报需求更加紧迫，对于快速开放的火灾或难以观察的火灾，要么是因为飞机不可用，要么无法在当地情况下运行。可以采用收集数据和传播情报的新的，经济高效的方法来应对这一挑战。

The US Fire Administration and USGS should lead in establishing a公私 - 宇宙 - 非营利组织合作伙伴关系，以收集，结合和传播有关火灾活动的可行信息，以使消防员和公众受益。情报系统的关键部分是由适当的联邦机构推出和维护的新的地静止卫星。

Details

Lack of intelligence in the first 90 minutes of the 2018 Camp Fire thwarted the wildfire evacuation plan that had been practiced by the town of Paradise, California. Because of the time of the fire, the aircraft that would have normally been used to gather intelligence was unstaffed and no alternative sources of intelligence were available. Mandatory evacuation of the town began只有在镇上建立了大火之后。营地大火，情报挑战以及疏散问题的速度并非独特。

Current satellites used to monitor wildland fires collect infrequent and low-resolution images that are not useful for actionable intelligence. A new geostationary (GEO) satellite constantly watching North America could detect a brush fire the size of a semi-truck and pinpoint its location to within 50 yards. Aircraft and satellites in low-Earth orbit are still required to collect higher resolution data, particularly for smaller and slower-moving fires. Points of critical consequence found at GEO can be investigated further by a low-Earth satellite, then coordinates of interest can be passed to aircraft pilots. The technical details of existing satellites for wildland fire management are compared to a GEO satellite in the appendix.

The intelligence gathered by a new GEO satellite should be merged with other sources to form an integrated intelligence system. This requires coordination, likely through a public-private-university-nonprofit partnership to enable collection, fusion, and dissemination of actionable intelligence, but the keystone of this system must be the GEO satellite. Further, collecting new data across spatial resolutions and time scales would contribute significantly to fire science, fire modeling efforts, and evaluation of fire mitigation efforts.

Recommendations

Appendix

The authors are part of a research group,FUEGO, that designed a satellite to bridge this intelligence gap described here. The following table compares the technical parameters of this system with satellites currently used for fire management.

FUEGO GOES Meso Sector
村
Minimum Detectable Fire 2 to 2 Megawatts 35兆瓦 7 Megawatts
持久性（地球上同一个位置的图像之间的秒数） 20 seconds 60 seconds 43000 seconds
Spatial Resolution Ground Sample Distance (Meters) 290 2200 375
能够在像素中定位点源 1/10th pixel none none
Data Latency 90 seconds 300秒 12000秒

Advance the predictive science of fire ecology and forest resilience

Winslow Hansen, Forest Ecologist, Cary Institute of Ecosystem Studies

在美国的某些森林抑制中，森林地区被烧毁，火灾严重程度正在增加，这使植被积累并因此为大火加油，气候变化正在促成这一日益严重的问题。前所未有的资源已可以解决火灾危机，但消防和森林管理的景观仍然分散。面对人力安全，燃料管理，空气质量，生物多样性保护和碳固存的竞争要求的经理和政策制定者面临巨大的科学不确定性，即生态系统和为什么生态系统和火灾制度将会改变。当我们不了解它的功能时，如何管理系统？

国会应支持雄心勃勃的研究合作to ensure the predictive science of fire ecology and forest resilience rapidly advances in time to support management and policy that addresses the fire crisis.

认识到火灾危机的严重性，国会allocated$5 billion in the Inflation Reduction Act for “forest management, planning, and restoration” activities, including hazardous fuels treatments. While unprecedented, the investment is sufficient to mechanically treat only a small portion of western forests. This means managers need to be strategic in implementation of fuels treatments and able to track their efficacy. No investor would commit funds to an endeavor where they could not quantitatively evaluate gains and losses. The same is true for investing in strategies to address the fire crisis.

The consequences of today’s management decisions will accrue over decades, the temporal scale on which forests and fire regimes change. To track progress toward more resilient forests, less catastrophic fire, and safer human communities, we need tools to determine in near real time where, when, and how forests are changing. We also need ways to evaluate the efficacy of fuels treatments for fostering more resilient forests and less catastrophic fire. Real time forest and fire tracking must also seamlessly feed into long-term models that help us project how today’s decisions may influence outcomes for decades to come. Such an integrated monitoring and projection system does not exist, but is vitally necessary for decision making. A fire ecology and forest resilience science collaborative could develop such a tool.

Recommendations

We recommend that Congress:

We recommend that the USDA Forest Service and Department of Interior:

We anticipate that the collaborative would cost about 100 million dollars over ten years. This funding would support a network of 20 scientific teams across the country and a lead center of excellence that provides synthesis, coordination, amplification, and management. Leaders of this effort should consider ongoing research efforts in relevant disciplines, collaborating where appropriate to ensure efforts are not duplicated.

NSF is the right agency to administer the collaborative because of their deep expertise in funding basic and applied research and because of their success in ambitious large-scale initiatives such as theLong-term Ecological Research Network和National Ecological Observatory Network。NSF最近也制作了investmentsin fire research. Our proposal builds off this momentum. Partnerships with USDA Forest Service, DOI, and Joint Fire Science Program would strengthen the connections between the science conducted and manager needs. If launched, the science collaborative would provide managers and policy makers with tools to plan strategies and track the efficacy of federal investment in proactive fire and forest management, based on state-of-the-art modeling and remote sensing, and underpinned by strong foundational science.

Develop next-generation fire and vegetation models for a changing climate

Matthew Hurteau, University of New Mexico

Wildfires are burning in ways thatsurprise经验丰富的消防员，当前的模型无法预测不断发展的火灾行为。部分由于气候变化，现有模型无法再现最近的灾难性野火。这意味着现有的火灾和植被模型可能无法预测未来的野火，或者何时可以安全地开处方大火，从而挑战了我们有效抑制野火或减轻其影响的能力。

国会应建立和资助卓越的中心，以开发，维护和运营支持Wildland Fire计划和管理的下一代消防和植被模型。

Climate change is expanding what is flammable. For example, the2020年溪Firein California burned through forests that had already been weakened by beetle infestations and drought, and burned with such intensity that current operational fire models could not reproduce the event. Ongoing climate change made this extreme fire behavior possible.

The wildfire research community has demonstrated it can respond to problem-based research needs as evidenced by the successful联合消防科学计划和National Science Foundation funding of Centers of Excellence (CoE). CoE’s have been created in a variety of topic areas and have demonstrated that supporting hubs of expertise to address specific research areas leads to positive outcomes. Developing five regional CoEs will a) facilitate research collaboration across disciplines, institutions, and regions, and b) provide regional service centers which will develop and run models focused on near and mid-term dynamics at local and event (e.g. treatment unit, wildfire) scales that support land management planning and decision-making. A cross-CoE leadership team will ensure that research and development activities are complementary.

We recommend that Congress:

这种方法的前进途径可能是在五个地区中的每个地区与合作者一起在一个机构中发起的飞行员，随着研究问题的发展和协作机制的完善，有机会扩展到五个区域中心。

建立五个COE来开发，维护和运营下一代模型每年的成本约为2500万美元，不到2021年联邦野火抑制支出的1％。这些中心可以通过国家科学基金会（NSF）与国防部合作建立和资助。Strategic Environmental Research and Development Program（SERDP）。NSF的位置良好，可以领导这项工作wildland fire prediction and managementas well as research协作in the space.

Managing fuels effectively to prevent future catastrophic events requires developing models that account for the new climatic conditions fire managers face, and will allow us to make wildfire management more predictable.

Expand capacity for effective collaboration between scientists and resource managers to inform forest management

俄勒冈州立大学副教授Meg Krawchuk

For years, the federal government has recognized the importance of scientists and decision-makers working together to solve complex wildland fire management problems. While many successful federal programs support such collaborations, institutional barriers still stand in the way of many fruitful science coproduction and communication efforts in wildland fire management.

The federal government should expand financial and institutional support for co-production of wildland fire science and science communication to help natural resource managers make evidence-based decisions in the context of the wildfire crisis.

According to USGS,共同制作of science projects “focus on scientists and resource managers working closely together to produce actionable products that are used to inform natural resource management decisions.” More broadly, science communication work at the project and program level can enhance the reach and relevance of coproduced science and distill literature for decision-making applications. These approaches have been championed in the field of wildland fire science and land management for years by land management agencies (including theUSGS Climate Adaptation Science CentersandUS Forest Service) and funding agencies (including the联合消防科学计划(JFSP) andNational Science Foundation）。

但是，研究人员和自然资源经理都报告说funding, capacity, and institutional barriersinhibit coproduced science efforts in wildland fire. For example,financial support and incentive structures(e.g., performance evaluation criteria, awards, and professional recognition) are often insufficient to support scientists in conducting longer-term collaborative, relationship-building work that can extend the reach and impact of co-produced science. Furthermore, program staff in agencies (where they exist) may lack bandwidth necessary to effectively distill large quantities of journal articles into the core “so what” conclusions needed by land management practitioners to integrate the most recent science with existing management strategies.

Addressing these gaps in coproduction and broader science communication support is crucial to maximizing the potential of scientific research to inform pressing forest management problems and capitalizing on successful investments in coproduction projects. More robust support for coproduction and communication in the wildland fire space will equip agencies to ensure that decision-makers have access to the “best available science” and can fulfill goals outlined in federal initiatives including theUSFS 10-year Wildfire Crisis Strategy, the Inflation Reduction Act, the Administration’s “Year of Evidence for Action,” and the “Year of Open Science。”

Specifically, Congress should:

具体而言，美国内政部地质调查局（USGS）和美国农业部森林服务部（USFS）应：

这些投资总计将少于现有合作工作的当前价格标签，但扩大了初始投资的影响力和影响。

Launch anOpen Disaster Data Initiativeto bolster whole-of-nation resilience from wildfires and related hazards

Shefali Juneja Lakhina, Wonder Labs

Federal, state, local, and Tribal agencies collect and maintain a range of disaster vulnerability, damage, and loss data. However, this valuable data currently lives on different platforms and in various formats across agency silos, making it difficult to augment whole-of-nation preparedness, response, and recovery from a range of natural hazards, including wildfires, smoke, drought, extreme heat, flooding, and debris flow.

The Biden-Harris Administration shouldlaunch anOpen Disaster Data Initiativethat mandates federal, state, local, and Tribal agencies to systematically collect, share, monitor, and report on disaster vulnerability, damage, and loss data, in formats that are consistent and interoperable.

在过去的十年中，几个两党research,数据， 和policy评论重申需要制定国家标准，以持续收集和报告损害和损失数据。最近的灾难andwildfireresearch data platforms and standards provide precedence and show how investing in data standards and interoperability can enable inclusive, equitable, and just disaster preparedness, response, and recovery outcomes.

TheOpen Disaster Data Initiativewill enable longitudinal monitoring of pre- and post- event data for multiple hazards resulting in a better understanding of cascading climate impacts. Guided by theOpen Government Initiative(2016), theFifth National Action Plan（2022），以及Year of Open Science(2023), theOpen Disaster Data Initiative将在联邦，州和地方政府如何将资金优先考虑，特别是对边缘化社区的优先级优先级。

Recommendations

We recommend the White House and Congress, where appropriate, take the following actions:

  1. Appoint a White-House level staff position in the Office of Science Technology and Policy to establish theOpen Disaster Data Initiativewith the participation of all relevant federal agencies currently engaged in the management of hydro-meteorological and hydro-geological hazards including drought, extreme heat, wildfires, smoke, flooding, and landslides.
  2. Issue anExecutive Order topromote the development and adoption of national standards for disaster vulnerability, damage, and loss data collection, sharing, and reporting, by all relevant federal, state, local, and Tribal agencies, as well as by universities, non-profits, and the private sector.
  3. 指定FEMA as the national focal point agency to maintain a national disaster loss database––a federated, open, integrated, and interoperable disaster data system that can seamlessly roll-up local data, including research and non-profit data. FEMA’sNational Incident Management Systemwill be well positioned to cut across hazard mission silos and offer wide-ranging operational support and trainingfor disaster loss accounting to federal, state, local, and Tribal agencies, as well as non-profit stakeholders.

Building on recent experience with developing an all-of-government COVID-19 pandemic management data platform, it is recommended that all federal agencies engaged in wildland fire management activities collaborate in taking the following steps to launch theOpen Disaster Data Initiative:

  1. Undertake a Disaster Data Systems and Infrastructure Assessment为了确定国家标准的发展并确定联邦，州，地方和部落机构以及慈善机构和私营部门的准确灾难数据跟踪，会计和共享的障碍。
  2. 采用国家灾难损失数据收集和报告标准解决有关数据质量，完整性，集成，互操作金博宝正规网址性和可访问性的持续问题。
  3. Ensure appropriate federal agency工作计划反映了国家数据标准，例如数字和基础架构计划，提案请求以及简化所有未来数据收集，共享和报告的采购流程。
  4. Develop federal agency capacitiesto accurately collect and analyze disaster vulnerability, damage, and loss data, especially as it relates to population estimates of mortality and morbidity, including from wildfire smoke.
  5. 向各州，非营利组织和私营部门提供指导，培训和资源，以采用国家灾难数据标准和促进无缝上卷的灾害脆弱性ability, damage, and loss data to the federal level thereby enabling accurate monitoring and accounting of community resilience in inclusive and equitable ways.


TheOpen Disaster Data Initiativewill need a budget and capacity commitment to streamline disaster data collection and sharing to bolster whole-of-nation disaster resilience for at least three societal and environmental outcomes. First,the Initiative will enable enhanced data sharing and information coordinationamong federal, state, local, and Tribal agencies, as well as with universities, non-profits, philanthropies, and the private sector. Second,the Initiative will allow for longitudinal monitoring of cascading disaster impacts on community well-being and ecosystem health, including a better understanding of how disasters impact poverty rates, housing trends, local economic development, and displacement and migration trends, particularly among socially and historically marginalized communities. Finally, the倡议将对政策和计划投资的优先级排序，以进行包容，公平和公正的降低灾害风险成果, especially in socially and historically marginalized communities, including rural communities.

开发一个联邦框架来衡量和评估野火的社会生态影响

Leana Weissberg, Associate Specialist, UC Berkeley; Ken Alex, Director, Project Climate, UC Berkeley

In the face of the wildfire crisis, federal agencies must work together to ensure that historic investments reach their full potential to protect people, property, ecosystems, and cultural resources. At present, federal agencies lack a comprehensive framework for evaluating wildfire’s socio-ecological impacts and efforts to mitigate them. While the importance of evaluating wildfire impacts is widely recognized and smaller scale efforts are underway, agencies don’t currently have a coordinated data sharing and reporting strategy for wildfire impacts.

我们建议，管理与预算办公室（OMB）召集联邦消防机构，以使用指标，基准和评估标准来评估野火的社会生态影响，以开发一个一致且具有区域性的框架。

Current federal agency efforts to gather, report, and evaluate the impacts of wildland fire are fragmented and siloed. In some cases, datasets conveying important information (e.g. fire severity and post-fire debris-flow assessments) exist but are not systematically reported. In others, data representing one aspect of wildfire impacts are reported in isolation, limiting their use in decision-making. For example, data on burned acres and wildfire emissions are rarely combined with Census data to estimate wildfire’s public health impacts.

As fire risk reduction investments reach historic levels, a systematic approach to evaluating and mitigating wildfire impacts is critical. By synthesizing and reporting data otherwise produced and evaluated in isolation, a more comprehensive framework will improve our collective understanding of the totality of wildfire impacts, where impacts are most severe, where they are ecologically beneficial, and how they evolve.

Federal departments and agencies involved in wildland fire management have acknowledged the importance of using the best available science and measuring performance. As two of the leading federal fire entities, the US Forest Service and Department of Interior recognize the need to employ the best available science for priority setting. Additionally, strategic planning documents from other federal fire entities identify the need for newperformance measures and dashboards(DHS) for equitable disaster recovery andreformed climate threat information delivery(DOC) for improved outcomes in underserved communities. The proposed framework would create connected governmental initiatives and resources to reduce redundancy, build a more complete understanding of wildfire’s socio-ecological impacts, and ensure coordinated and comprehensive reporting on progress toward impact mitigation. All federal departments and agencies whose work touches wildland fire should be involved in this effort, including: DHS, DOC, DOE, DOI, DOT, DHS (including the CDC and NIH), USDA, EPA, and NSF.

We recommend that Congress take the following steps to implement this framework:

成功的框架将需要资金进行协调（人员配备，数据收集工作，范围的数字基础架构要求和报告）以及实施（扩大数据收集和构建数字基础架构）。每个部门的一名GS-13和三名GS-11员工组成的团队每年将花费约3至330万美元。或者，框架发展可以利用术语长度人员，例如美国数字服务。

Improving safety and efficiency of wildfire suppression with advanced UAS

Daniel Wholey, Rain Industries

未扎根的空中系统（UAS）在野外火灾管理中具有多种用途，包括实时火灾映射，向响应者提供物资，进行骨骼燃料和处方大火，甚至提供人工降雨以抑制火灾。国会指示内政部（DOI）和农业部（USDA）通过立法（例如Dingell Jr. Act）来扩大UAS在Wildland Fire Management行动中的使用。Security concernsraised in 2020 temporarily halted existing UAS programs and hampered the development and integration of this technology.

Congress, DOI, and USDA should fully resume implementation of the UAS program outlined in the Dingell Jr. Act and include new funding opportunities to promote the development of domestic UAS technology for wildland fire suppression and other management needs.

Fire agencies in the United States effectively use small UAS for conducting prescribed fires and wildland fire mapping. While small UAS have provided significant value for fire agencies, we believe that large UAS, which are currently underutilized, can dramatically improve safety and efficiency of fire mapping and suppression efforts. Other groups have demonstrated the role that larger, more advanced UAS can play in wildfire management and response. In 2018 the加利福尼亚国民警卫队使用了MQ-9收割机, a remotely-piloted large UAS, to map wildfires in real time and send live video to operational facilities, providing critical situational awareness.洛克希德·马丁和卡曼demonstrated cargo and water drops from the K-MAX helicopter.Rain Industries[author Daniel Wholey is employed by Rain Industries] is integrating with third party early detection networks and automating large UAS to respond rapidly to wildland fire ignitions.

TheDingell Jr Act指示DOI和USDA扩展UAS计划，并评估包括大型UA的新技术，包括大型UAS，以加速UAS在部门运营中的部署和集成。该法案的实施在2020年特朗普政府时受到质疑接地无人机over fears that sensitive data was sent to the China-based manufacturers, where it could be accessed by the Chinese government. Progress has been made on several fronts since this setback.DOI effectively lifted the drone operations2022年12月的禁令。最近的拨款中有超过6亿美元用于准备和抑制，其中一些可用于推进UAS计划。

Given mandates from Congress and the continuing security concerns associated with foreign UAS technology, we believe that the solution is to expand domestic research, development, and production of large UAS for wildfire management operations.

Recommendations

DOI and USDA should resume implementation of the Dingell Jr. Act and include an initiative to promote domestic research, development, and production of large UAS, such as helicopters or fixed-wing aircraft, for wildfire management operations, particularly suppression. This initiative should include innovative funding mechanisms such asprize competitions, milestone-based payment programs, and小型企业创新研究（SBIR）和小型企业技术转移（STTR）。

国会应确保该计划的适当资源，根据联邦航空管理局（FAA）的估计为3000万美元FY22-26 National Aviation Research Plan。

Workforce

Establish a Tribal ranger program to fund permanent land stewardship opportunities for Tribal communities

克里斯·阿德兰（Chris Adlam），俄勒冈州立大学博士

Due to historic disenfranchisement and current socioeconomic conditions, many members of Tribal Nations currently lack the resources and time needed to steward their ancestral lands in the same manner as generations before them have done for millenia. This lack of opportunityhas contributed to negative outcomes for Tribal communities, including compromised forest health on ancestral lands, entrenched poverty on reservations, and the erosion of vital, intergenerational Traditional Ecological Knowledge.

国会应将资金分配给部落国家和部落领导的组织，以创建和定义计划，以建立澳大利亚的土著游侠计划or加拿大的土著监护人计划, that provide stable funding for long-term employment opportunities, training, and equipment for Tribes to carry out land stewardship activities, including cultural burns, post-fire monitoring, and ecological restoration.

加拿大和澳大利亚的计划为部落国家和组织成员创造了长期和短期就业机会，他们有助于发展致力于恢复和野火缓解的劳动力。这些计划授权土著群体促进土地有效管理，建立持久的关系并更好地转移代际知识。例如，澳大利亚的土著游骑兵团体reported several broader benefits他们的长期弱势地区社区operate within, including “safer communities, strengthened language and culture, an ability to find meaningful employment, increased respect for women, and more role models for younger people.” Similar programs in Australia have seenreturns on investment of upward of $3.50 per $1.00 invested。

By following these successful models, the federal government can create economically beneficial opportunities for Tribal nations and organizations to steward forests on their ancestral lands. This program could focus on long-term opportunities to maximize the benefit of place-based, intergenerational knowledge and wisdom. The United States Tribal Ranger program has the potential to provide a high return on investment by protecting wildland urban interface communities and infrastructure, safeguarding watersheds and air quality, and providing needed economic benefits for Indigenous participants, their communities, and other communities in the landscapes within which they serve.

Recommendations

We recommend that Congress consider:

Tribes and Indigenous-oriented organizations could also decide to utilize the program and its funding to create apprenticeship programs (such as those recommended here) focused on conserving and implementing place-based knowledge to steward ancestral lands. If necessary, this program could be launched as a pilot project with additional funds allocated at a later date.

通过这个计划,联邦政府我们uld rightfully recognize and elevate the role of Indigenous practitioners, who have long held deep expertise on fire but who have been continually marginalized. The program would therefore be an important step in correcting centuries of persecution and flawed forest management.

扩大野火缓解和健康森林的军团计划

教授和主任Irva Hertz-Piccioto如是说,Environmental Health Sciences CenterUniversity of California, Davis

我们森林中的死和生病的树木和浓密的营养碎片是fueling巨脂力并放大它们的频率，强度和破坏性。仅火力抑制就有costthe U.S. between $1.5 billion and $4.5 billion annually since 2012. Suppression costs amount to only a small fraction of the full costs of wildfire, which include economic, infrastructure, ecosystem, health and other costs. Fixing this problem will require restoring forest health throughout the country through a massive increase in the wildland firefighting workforce, particularly those trained in mitigation and resilience.

To address the growing wildfire challenge and engage youth in wildland fire careers, Congress and federal fire agencies should expand on and better leverage the Corps program model across the United States.

准备应对国家野外火灾挑战的劳动力投资已经在进行中。例如，DOI Wildland Fire办公室和美国农业部正在使用两党基础设施​​法的资金来支持“更永久的劳动力，能够全年进行火灾反应和缓解工作”。使Wildland Fire员工队伍专业化以解决更长的火灾季节，并准备这些工人支持缓解工作，这对于建立更具弹性的景观至关重要。但是，仅此一项就不足以满足我们森林健康问题的规模。

Corps programs can supplement and complement the development of this more permanent workforce and simultaneously accelerate the pace of hazardous fuels reduction on the ground. Across the country, they are already doing so; for example, theCalifornia Conservation Corps’ Forestry Corps(which partners with the US Forest Service) focuses on removing overgrown and dead vegetation as part of wildfire mitigation on state lands. Members receive relevant certifications to prepare them for careers in forestry. AmeriCorps has alsosupported在几个reg荒地火灾减灾活动ions of the country, including through employingveterans， 和providesenvironmental stewardshipopportunities across the US.

Given the enormity of the need and the urgency of reducing hazardous fuels, federal agencies can and should expand support for these models across the nation. Partnerships with state agencies, nonprofit, and community organizations can be leveraged to make these programs more wide-ranging and cost-effective. Expanding these programs will accomplish three core goals: 1) reduce buildup of hazardous fuels 2) broaden the pool of qualified applicants for jobs in federal and state wildland fire management and mitigation and 3) enrich the lives of youth by providing them with hands-on service experiences making a difference for the environment and health.

Recommendations

We recommend that Congress:

We recommend that the USFS, AmeriCorps, and DOI work together to:

Expanded Corps program will dramatically reduce destructive megafires and associated evacuations, provide cleaner air to breathe, and restore forest health across the nation.

它还将赋予一代年轻人的新技能，为他们提供优质的工作，以及与自然的有意义的联系，改善士气和心理健康以及更美好的未来。

Invest in worker-led industries for whole-of-community wildfire resilience

Shefali Juneja Lakhina, Wonder Labs

Forestry and fire workforce discussions have so far focused on addressing the staffing and retention challenges of federal and state agencies. However, not enough attention is being paid to the enormous yet untapped potential of informal workforce capacities. Private industry, small businesses, and community-based organizations, hire and train thousands of diverse informal workers, including students, volunteers, migrant, incarcerated, and justice-impacted people. Spurring increased investment in this fast-growing informal workforce presents the shortest and most sustainable path to meeting national wildfire resilience and climate mitigation goals. Growing a diverse worker-led forest and fire industry can also help launch previously uncharted industries that are adaptive and responsive to local needs in a changing climate.

The Biden-Harris Administration should launch an ‘Investing in worker-led industries for whole-of-community wildfire resilience’ program that supports innovative, future-ready, and tech-forward solutions from private industry, small businesses, and community-based organizations working on the frontlines of wildfire impacts. Over the next five years, at least $250 million should be invested in creating a worker-led forestry and fire industry to address the entire lifecycle of workforce development from education, training, and certification, to building resilient community infrastructure that includes family-sustaining housing, and enabling public health and whole-of-community wellbeing.

Several联邦,state， 和local努力训练和认证更多的林业和冷杉e workers are already underway. While increased training and certification is one obvious solution to the current workforce shortage,最近的研究reveal that addressing barriers related topay parity, decent housing, mental health, and career-track pathways, will also be essential to build a robust and可持续森林恢复劳动力。Yet, addressing these entry points for federal and state agencies will not necessarily lead to place-based, worker-owned, and community-centered solutions that sustaincare for informal sector workerswho live and work in the wildland-urban interface and intermix communities across the western United States. Supporting the creation of thousands of small business opportunities presents ahigh-road to address both the demand and supply sideof the current workforce problem in equitable and sustainable ways.

Building on the正义40指令, there is a significant opportunity to invest in most-impacted communities, including Indigenous communities, rural communities, and low-income communities that house students,volunteers,migrant， 和被监禁的工人。这项投资将刺激新的工人拥有和以工人为主导的工业 - 在野火风险评估，家庭硬化，可辩护的空间，减少燃料，规定的烧伤，木质大众工业，生物燃料，木材，木材，火灾检测和响应，保险，烟雾管理，烟雾管理，管理，烟雾管理，清洁空气结构，污点后重建和修复。该提案不会在孤岛中建立这些行业，而是刺激一个相互依存的网络组成的基于地点的工人拥有的小型企业，这些网络可以促进富有弹性的本地基础设施和整个社区福祉。

Investment in wildfire resilience must be considered a public good: an investment in the nation’s workers, community infrastructure, and local industry. Past initiatives such as the effort to为农场家庭家庭建造负担得起的住房， 和ongoing initiatives, such as the Tahoe Truckee Community Foundation’sForest FuturesProgram, theSierra Forest Entrepreneurs Program和加利福尼亚的Climate Catalyst Revolving Loan Fund，为公私的人类 - 菲兰人类合作伙伴关系提供先例，以将新颖的解决方案带入级联危机。该计划的资本可以以使工人拥有的合作社公平地解决劳动力差距并培养富有弹性的社区基础设施（包括家庭维持住房）的方式融合在一起。反过来，这可以产生新的本地行业 - 不仅在木材产品中，而且还可以在相关产品和服务中刺激更大的野火弹性经济。

Recommendations

The Biden-Harris Administration should invest in the creation of a new worker-led forestry and fire industry that supports the creation of resilient local infrastructure and enables whole-of-community wildfire resilience. Specifically, Wonder Labs recommends the following actions:

Build on theGood Jobs Challenge，美国商务部应试行企业家枢纽，这些枢纽至少为训练有素的林业和消防人员提供至少1.5亿美元的敏捷资本和指导，以创建小型企业，采购设备，创建弹性的本地基础设施，并为多范围。These hubs should be inclusive and non-discriminatory, including for people from incarcerated and justice-impacted backgrounds.

The Department of Interior and the Department of Agriculture should together invest at least $60m in providing agile capital to diverse land and fire stewardship practitioners, including Indigenous fire practitioners, ranchers, and farmers, all who are already contributing to land and habitat restoration on Tribal and private lands, and need investments to scale capacities, equipment, and local infrastructure.

The U.S. Forest Service, the National Park Service, and the Bureau of Land Management should work with relevant state agencies and private industry across the western United States to create career-pathways, including small business opportunities, for formerly incarcerated and justice-impacted individuals。Investing at least $25m in piloting such an initiative could enable effective reintegration with communities on release and contribute to greater social, economic, and environmental outcomes. Specifically,从加利福尼亚的体验中学习:

Build on the Civilian Climate Corps, the Bureau of Land Management, with the U.S. Forest Service and the National Park Service, should invest at least $15m in co-facilitating youth-led forestry and fire programs, including sustained outreach to diverse young Black, Indigenous, and People of Color (BIPOC), women, people who identify as LGBTQQIA2S+, and justice-involved people in various stages of career training and eligibility。Specifically:

Invest in workforce development that empowers Indigenous experience and knowledge and supports marginalized communities

瑞安·里德（Ryan Reed），卡鲁克部落的成员；土著消防从业者；FireGeneration合作；和凯尔·特雷夫尼（Kyle Trefny），FireGeneration合作

As the White House acknowledged inrecent guidance，传统的生态知识“历史上在科学社区中被边缘化，并被排除在研究和学术资源，资金和其他机会之外。”野外火领域也不例外：传统的生态土著知识系统已降级为缓解火灾和管理领导的外围，阻止了文化消防从业者在凭证系统中认可的文化火灾经验多年。

国家野火协调小组应制定课程和资格标准，以认识传统的生态知识系统，并采取进一步的行动来解决参与Wildland Fire Management劳动力的系统性障碍。

文化消防从业者面临与联邦消防管理人员合作并扮演领导职务的障碍，尽管知识和实践数十年。这些障碍不仅加剧了压迫，将传统的生态知识降低为较少，而且防止其他合格的领导人为当前的缓解和管理结构做出了贡献。

Women and elders often serve as leaders and teachers in Indigenous communities, stewarding and passing down Traditional Ecological Knowledge. Unfortunately, womenface barriers to full inclusion and advancementin the男性主导的野地消防人员。例如，一个Forest Service survey发现四分之三的妇女报告说“由于性别而感到不合时宜”，并且领导角色的妇女“面临挑战在寻求尊重”。经过调查的森林服务员工中有三分之一认为，个人特征阻碍了Wildland Fire的职业发展。

These systemic barriers must be overcome to create pathways for more inclusive fire management leadership involving Indigenous women and elders, and supporting marginalized groups in the wildland fire space. TheNational Wildfire Coordinating Group, which establishes operations, positions, and qualification standards across agencies in wildland fire, should take further action to foster a wildland fire workforce and culture that reflects the full diversity of knowledge and experience that America has to offer.

Recommendations

To ensure that existing workforce development programs incorporate Indigenous knowledge, the National Wildfire Coordinating Group should:

为了消除包容性消防管理工作文化和领导力的系统性障碍，机构应利用其管辖权和国家野火协调小组的管辖范围来：

通过对青年和社区的教育投资来支持未来的生态消防管理员工

瑞安·里德（Ryan Reed），卡鲁克部落的成员；土著消防从业者；FireGeneration合作；和凯尔·特雷夫尼（Kyle Trefny），FireGeneration合作

Wildland fire doesn’t just affect wildland – it puts livelihoods, physical safety, and treasured cultural resources at risk. Despite the danger fire presents, local communities are often left out of discussions and development when it comes to fire management policy. In this gap is a critical opportunity: a younger generation eager to facilitate transformational shifts to protect their communities and local land.

国会应投资于短期内提供训练有素的劳动力以补充机构能力的青年计划，从长远来看，这为消防管理职业提供了途径。

Recommendations

We recommend that Congress:

Directly Fund Tribes to Create and Implement Land Stewardship Initiatives

加利福尼亚大学戴维斯分校的Nina Fontana博士

Across the United States, Tribal nations and organizations have the knowledge and will to lead cultural and prescribed burns. Unfortunately, they are consistently limited by (a) insufficient funds, and (b) burdensome regulatory requirements that often prove overly burdensome to comply with. These two issues are connected. Tribal practitioners are often unable to obtain federal grants for land stewardship purposes because they do not have the capacity to find and apply for them, to compete with state agencies and organizations in the application process, and to comply with the grant requirements, which can conflict with Cultural Fire traditions in fundamental ways.

Congress should appropriate discretionary funds directly to Tribal nations and Tribally-led organizations for fire hazard reduction in order to decrease the administrative capacity needed for Tribes to compete for grants. The funds will be dispersed by regional Tribal liaisons, who will gather and utilize input from local actors to direct grants.

部落政府和组织需要直接赠款，以应有的方式行使其主权。当向部落政府和组织提供足够的资金并能够指导其使用情况时，文化消防从业者可以设计适合其独特传统和土地中包含的本地植物社区的文化消防项目。此外，通过给予部落对资金的更大酌处权，联邦政府将a）减轻部落的监管负担，b）提供对文化燃烧的更多认识，作为一种独特的有价值的土地修复和基于地点知识的形式，而不是分类这种做法是经常被忽视的处方燃烧子集。

最重要的是，直接资金将使部落政府和组织能够将关键能力从时间密集型的行政任务转移到管理其祖先土地上。部落可以扩大消防从业者的劳动力，治疗更大的土地领域，并更好地保护重要的自然和文化资源。

Recommendations
We recommend that Congress:

By drawing upon the expertise of communities and Cultural Fire Practitioners, the Tribal liaisons would be able to target funds to groups and landscapes that have the greatest need, ensuring that federal resources are utilized in an effective manner each year.

It is time for the federal government to recognize the deep expertise of Tribes in fire management. By giving Tribes greater influence in determining the use of funds for preventative and mitigative activities, Congress would bring funding structures in line with the rightful sovereignty of Tribes, and it would protect communities and natural resources across the country by clearing the path for more beneficial fire.

关于这些建议

Recommendations below include ideas targeted to both Congressional and Executive Branch. The Commission may wish to consider whether Congress has a role in encouraging or supporting Executive Branch changes described here; additionally, we plan to share these recommendations with Executive Branch actors, including the Wildland Fire Leadership Council (WFLC) and the White House Wildfire Resilience Interagency Working Group, for their consideration.

A Note on Recommendation Attribution

请注意，下面的每个建议都是单独的，归因于特定的贡献者或贡献者团队。下面的建议不一定反映完整队列的观点。此外，整个建议清单也不一定反映出完整队列的观点，也不构成共识。

首字母缩写

CDC: Centers for Disease Control and Prevention

国土安全:国土安全部

DOC: Department of Commerce

DOI: Department of the Interior

EPA：环境保护局

FEMA：联邦紧急管理机构

HHS：卫生与公共服务部

NIH：国立卫生研究院

NSF: National Science Foundation

UAS：未裂的空中系统

美国农业部：美国农业部

USFS: United States Forest Service

USGS：美国地质调查局

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