Burned Area Emergency Response (BAER) Limitations

While many wildfires cause minimal damage to the land and pose few threats to the land or people downstream, some fires result in damage that requires special efforts to reduce impacts afterwards. Loss of vegetation exposes soil to erosion; water run-off may increase and cause flooding, soil and rock may move downstream and damage property or fill reservoirs putting community water supplies and endangered species at-risk.

The Burned Area Emergency Response (BAER) program is designed to identify and manage potential risks to resources on National Forest System lands and reduce these threats through appropriate emergency measures to protect human life and safety, property, and critical natural or cultural resources. BAER is an emergency program for stabilization work that involves time-critical activities to be completed before the first damaging storm event to meet program objectives.

BAER Objectives:

• Determine whether imminent post-wildfire threats to human life and safety, property, and critical natural or cultural resources on National Forest System lands exist and take immediate actions, as appropriate, to manage the unacceptable risks.
• If emergency conditions are identified, mitigate significant threats to human life and safety, Forest Service property and other critical natural and cultural resource values.
• Prescribe emergency response actions to stabilize and prevent unacceptable degradation to natural and cultural resources, to minimize threats to life or property resulting from the effects of a fire, or to repair/replace/construct physical improvements necessary to prevent degradation of land or resources.
• Implement emergency response actions to help stabilize soil; control water, sediment and debris movement and potentially reduce threats to the BAER critical values identified above when an analysis shows that planned actions are likely to reduce risks substantially within the first year following containment of the fire.
• Monitor the implementation and effectiveness of emergency treatments that were applied on National Forest System lands.

BAER Interagency Coordination:

Post-fire emergency response is a shared responsibility. There are several Federal, State and local agencies that have emergency response responsibilities or authorities in the post-fire environment. The BAER team coordinates with these agencies to look at the full scope and scale of the situation to reduce the potential threats to human life and property. It is important that BAER efforts are communicated with all affected and interested cooperating agencies and organizations regarding other post-fire recovery and restoration efforts.

BAER treatments cannot prevent all of the potential flooding or soil erosion impacts, especially after a wildfire-changed landscape. It is important for the public to stay informed and prepared for potentially dramatic increased run-off events.

One of the most effective BAER strategies is interagency coordination to provide post-fire threat information to local cooperators who can assist affected businesses, homes, and landowners to prepare for rain events. For example, the Natural Resources Conservation Service (NRCS) has the Emergency Watershed Protection (EWP) program for post-emergency assistance on private and tribal land, the National Weather Service (NWS) has responsibility for flood warning alerts, the Federal Emergency Management Agency (FEMA) has flood insurance and other responsibilities if the area is a Presidentially-declared emergency, Resource Conservation Districts (RCD) and counties, as well as State and local-highway and emergency services departments, Flood Control authorities, etc. It is important that landowners work directly with NRCS and other agencies to determine appropriate actions needed to protect private structures and other assets.

BAER Process:

BAER assessment teams are staffed by specially trained professionals that may include: hydrologists, soil scientists, engineers, biologists, botanists, archeologists, and others who evaluate the burned area and prescribe temporary emergency stabilization actions on National Forest System lands to protect the land quickly and effectively. BAER assessments usually begin before a wildfire has been fully contained.

A BAER assessment team conducts field surveys and uses science-based models to rapidly evaluate and assess the burned area and prescribe emergency stabilization measures. The team generates a “Soil Burn Severity” map by using satellite imagery which is then validated and adjusted by BAER team field surveys to assess watershed conditions and model potential watershed response from the wildfire. The map identifies areas of soil burn severity by categories of very low/unburned, low, moderate, and high which may correspond to a projected increase in watershed response. The higher the burn severity, the less the soil will be able to absorb water when it rains. Without absorption, there will be increased run-off with the potential of flooding.

The BAER team presents these findings in an assessment report that identifies immediate and emergency actions needed to address post-fire risks to human life and safety, property, cultural and critical natural resources. This includes early detection and rapid response (EDRR) treatments to prevent the spread of noxious weeds into native plant communities. The BAER report describes watershed pre- and post-fire watershed response information, areas of concern for life and property, and recommended short-term emergency stabilization measures for Forest Service lands that burned.

In most cases, only a portion of the burned area is actually treated. Severely burned areas steep slopes, and places where water run-off will be excessive and may impact important resources, are focus areas and described in the BAER assessment report if they affect critical values. Response action timing is essential to ensure the emergency stabilization measures are effective.

There are a variety of emergency stabilization actions that the BAER team can recommend for Forest Service land such as mulching with agricultural straw or chipped wood to protect soil productivity, increasing road drainage to keep roads and bridges from washing-out during post-fire floods, and early detection rapid response invasive plant treatments to prevent spread of weeds into native plant communities. BAER treatments are preventative in nature but cannot prevent all damage, especially debris torrents in areas that are prone to sliding and have lost critical root structure from plants.

The Cans and Cannots of BAER:

What BAER Can Do:

• Install water or erosion control devices
• Seed or mulch for erosion control or stability reasons
• Install erosion control measures at critical cultural sites
• Install temporary barriers to protect treated or recovering areas
• Install warning signs
• Replace minor safety related facilities, like burned guard rails
• Install appropriate-sized drainage features on roads, trails
• Remove critical safety hazards
• Prevent permanent loss of T&E habitat
• Monitor BAER treatments
• Implement EDRR treatments to minimize the spread of noxious weeds into native plant communities

What BAER Cannot Do:

• Prevent all flooding and debris flows
• Replant commercial forests or grass for forage
• Excavate and interpret cultural sites
• Replace burned pasture fences
• Install interpretive signs
• Replace burned buildings, bridges, corrals, etc.
• Repair roads damaged by floods after fire
• Remove all hazard trees
• Replace burned habitat
• Monitor fire effects
• Treat pre-existing noxious weeds

BAER Funding:

Special Emergency Wildfire Suppression funds are authorized for BAER activities and the amount of these expenses varies with the severity of the fire season. Some years see little BAER activity while other years are extremely busy.

Because of the emergency nature of BAER, initial requests for funding of proposed BAER treatments are supposed to be submitted by the Forest Supervisor to the Regional Office within7 days of total containment of the fire. The Regional Forester’s approval authority for individual BAER projects is limited. Approval for BAER projects exceeding this limit is forwarded onto the Washington Office.

SPECIAL NOTE: Everyone near and downstream from the burned areas should remain alert and stay updated on weather conditions that may result in heavy rains over the burn scars. Flash flooding may occur quickly during heavy rain events-be prepared to take action. Current weather and emergency notifications can be found at the National Weather Service website: www.weather.gov/lox/.   

KEY ELEMENTS OF A BAER ASSESSMENT 
                              
Forest Service BAER assessment teams are established by Forest Supervisors before wildfires are fully contained. The teams coordinate and work with the USDA Natural Resources Conservation Service (NRCS), Bureau of Land Management (BLM), Fish & Wildlife Service (FWS), National Weather Service (NWS), local counties, State Department of Transportation, and other federal, state, and local agencies to strategically assess potential post-fire impacts to the watersheds burned from wildland fires.

• The BAER assessment teams are evaluating watershed conditions to determine the level of potential risks to human life, safety, property, critical natural and cultural-heritage resources, and determine if there are appropriate and effective emergency stabilization measures that can be implemented on federal lands in a timely manner to reduce unacceptable risks from potential flooding and debris flow threats.

• The BAER assessment team conducts field surveys and uses science-based models to rapidly evaluate and assess the burned area.

• BAER assessment teams are staffed by specially trained professionals that may include: hydrologists, soil scientists, engineers, geologists, biologists, botanists, archeologists, geographic information system mapping specialists, recreation and trails specialists, and others who evaluate the burned area and prescribe emergency response actions to protect the land quickly and effectively.

• BAER assessments usually begin before a wildfire has been fully contained.

• The BAER assessment team generates a “Soil Burn Severity” map by using satellite imagery which is then validated and adjusted by BAER team field surveys to assess watershed conditions and watershed response to the wildfire. The map identifies areas of soil burn severity by categories of low/unburned, moderate, and high which corresponds to a projected increase in watershed response.

• The BAER team presents these findings and treatment recommendations to the Forest Supervisor in an assessment report that identifies immediate and emergency stabilization actions needed to address potential post-fire risks to human life and safety, property, cultural-heritage and critical natural resources on National Forest System lands.

• The BAER report describes watershed pre- and post-fire response information, areas of concern for human life, safety and property, and recommended short-term emergency stabilization actions for federal lands that burned.

• In most cases, only a portion of the burned area is actually treated.

• If the BAER assessment team determines there may be potential emergency situations, the short-term goal is to have flood and erosion control protection measures completed before the first large, damaging rain events occur.

• Timely implementation is critical if BAER emergency response actions are to be effective.

• The BAER assessment team coordinates with other federal and local agencies, and counties that assist private landowners in preparing for increased run-off and potential flooding.

• Federal assistance to private landowners regarding post-fire potential impacts is the primary responsibility of the NRCS through the Emergency Watershed Protection (EWP) program (www.nrcs.usda.gov/wps/portal/nrcs/main/national/programs/landscape/ewpp/).

• NRCS in coordination with additional state, local and federal agencies conduct damage survey reports for the private land adjacent to and downstream from the burned areas. NRCS uses these reports, along with the BAER team’s assessment report, to develop recommended emergency measures for businesses and private home and landowners to reduce the impacts to their property from potential increased water and debris flows.

  SPECIAL NOTE: Everyone near and downstream from the burned areas should remain alert and stay updated on weather conditions that may result in heavy rains over the burn scars. Flash flooding may occur quickly during heavy rain events-be prepared to take action. Current weather and emergency notifications can be found at the National Weather Service website: www.weather.gov/lox/.

FOREST SERVICE BAER PROGRAM OVERVIEW

The Burned Area Emergency Response (BAER) program is designed to identify and manage potential risks to resources on National Forest System lands and reduce these threats through appropriate emergency measures to protect human life and safety, property, and critical natural or cultural resources. BAER is an emergency program for stabilization work that involves time-critical activities to be completed before the first damaging event to meet program objectives:

BAER Objectives:

-   Determine whether imminent post-wildfire threats to human life and safety, property, and critical natural or cultural resources on National Forest System lands exist and take immediate actions, as appropriate, to manage the unacceptable risks.

-   If emergency conditions are identified, mitigate significant threats to health, safety, human life, property and critical cultural and natural resources.

-   Prescribe emergency response actions to stabilize and prevent unacceptable degradation to natural and cultural resources, to minimize threats to critical values resulting from the effects of a fire, or to repair/replace/construct physical improvements necessary to prevent degradation of land or resources.

-   Implement emergency response actions to help stabilize soil; control water, sediment and debris movement and potentially reduce threats to the BAER critical values identified above when an analysis shows that planned actions are likely to reduce risks substantially within the first year following containment of the fire.

-   Monitor the implementation and effectiveness of emergency treatments that were applied on National Forest System lands.

While many wildfires cause minimal damage to the land and pose few threats to the land or people downstream, some fires result in damage that requires special efforts to reduce impacts afterwards. Loss of vegetation exposes soil to erosion; water run-off may increase and cause flooding, soil and rock may move downstream and damage property or fill reservoirs putting community water supplies and endangered species at-risk.

The BAER team presents these findings in an assessment report that identifies immediate and emergency actions needed to address post-fire risks to human life and safety, property, cultural and critical natural resources. This includes early detection and rapid response (EDRR) treatments to prevent the spread of noxious weeds into native plant communities. The BAER report describes watershed pre- and post-fire watershed response information, areas of concern for life and property, and recommended short-term emergency stabilization measures for Forest Service lands that burned.

In most cases, only a portion of the burned area is actually treated. Severely burned areas steep slopes, and places where water run-off will be excessive and may impact important resources, are focus areas and described in the BAER assessment report if they affect critical values. Time is critical if the emergency stabilization measures are to be effective.

A BAER assessment team conducts field surveys and uses science-based models to rapidly evaluate and assess the burned area and prescribe emergency stabilization measures. The team generates a “Soil Burn Severity” map by using satellite imagery which is then validated and adjusted by BAER team field surveys to assess watershed conditions and model potential watershed response from the wildfire. The map identifies areas of soil burn severity by categories of very low/unburned, low, moderate, and high which may correspond to a projected increase in watershed response. The higher the burn severity, the less the soil will be able to absorb water when it rains. Without absorption, there will be increased run-off with the potential of flooding.

BAER Funding:

Special Emergency Wildfire Suppression funds are authorized for BAER activities and the amount of these expenses varies with the severity of the fire season. Some years see little BAER activity while other years are extremely busy.

Because of the emergency nature of BAER, initial requests for funding of proposed BAER treatments are supposed to be submitted by the Forest Supervisor to the Regional Office within 7 days of total containment of the fire. The Regional Forester’s approval authority for individual BAER projects is limited. Approval for BAER projects exceeding this limit is to the Washington Office.

SPECIAL NOTE: Everyone near and downstream from the burned areas should remain alert and stay updated on weather conditions that may result in heavy rains over the burn scars. Flash flooding may occur quickly during heavy rain events-be prepared to take action. Current weather and emergency notifications can be found at the National Weather Service website: www.weather.gov/lox/.

THREE PHASES OF WILDFIRE RECOVERY

There are three phases of recovery following wildfires on federal lands:

• Fire Suppression Repair

• Emergency Stabilization-Burned Area Emergency Response (BAER)

• Long-Term Recovery and Restoration

• Fire Suppression Repair is a series of immediate post-fire actions taken to repair damages and minimize potential soil erosion and impacts resulting from fire suppression activities and usually begins before the fire is contained, and before the demobilization of an Incident Management Team. This work repairs the hand and dozer fire lines, roads, trails, staging areas, safety zones, and drop points used during fire suppression efforts.

• Emergency Stabilization-Burned Area Emergency Response (BAER) is a rapid assessment of burned watersheds by a BAER team to identify imminent post-wildfire threats to human life and safety, property, and critical natural or cultural resources on National Forest System lands and take immediate actions to implement emergency stabilization measures before the first post-fire damaging events. Fires result in loss of vegetation, exposure of soil to erosion, and increased water runoff that may lead to flooding, increased sediment, debris flows, and damage to critical natural and cultural resources. BAER actions such as: mulching, seeding, installation of erosion and water run-off control structures, temporary barriers to protect recovering areas, and installation of warning signs may be implemented. BAER work may also replace safety related facilities; remove safety hazards; prevent permanent loss of habitat for threatened and endangered species; prevent the spread of noxious weeds, and protect critical cultural resources.

• Long-Term Recovery and Restoration utilizes non-emergency actions to improve fire-damaged lands that are unlikely to recover naturally and to repair or replace facilities damaged by the fire that are not critical to life and safety. This phase may include restoring burned habitat, reforestation, other planting or seeding, monitoring fire effects, replacing burned fences, interpreting cultural sites, treating noxious weed infestations, and installing interpretive signs.

BAER KEY MESSAGES PREPARING FOR RAIN

While many wildfires cause minimal damage to the land and pose few threats to the land or people downstream, some fires cause damage that requires special efforts to manage unacceptable risks afterwards.

Summer thunderstorms and other rain events in the mountains can result in high runoff and flash flooding.

Wildfire increases the potential for post fire flooding, soil erosion, and debris flows that could impact campgrounds, fishing areas, homes, structures, roads, and other infrastructure within, adjacent to, and downstream from the burned areas.

Post-fire, watershed conditions will naturally receive and transport water and sediment differently than during pre-fire conditions.

The public and communities adjacent to and downstream from burned areas should expect increased flooding and debris transport during smaller rain events than would normally cause this.

The potential for increased runoff and debris flows are not just a one-year concern.

We need to recognize the threat potential of flash floods and debris flows may exist for the next 3-5 monsoon and winter seasons, depending on the intensity of these storms.

For life and safety concerns, California National Forest closures may need to be implemented prior to forecast rain events until the burned area fully recovers.

Residents and visitors should remain alert to weather events and plan ahead when travelling along roads downstream from the burned areas of recent wildfires.

Forest Service Burned Area Emergency Response (BAER) teams have been working on California’s National Forests to assess the condition of the watersheds on federal land that burned this summer and fall.

The BAER assessment team identifies potential threats to critical values-at-risk and recommends emergency stabilization response actions that are implemented on federal lands to reduce potential post-fire risks.

BAER critical values that may be considered at-risk on National Forest System (NFS) lands are:

• Human life and safety.

• Property on Forest Service lands such as buildings, water systems and infrastructure, road and trail prisms.

• Natural Resources on Forest Service lands such as water, soil productivity and hydrologic function, areas where invasive species or noxious weeds may impact native or naturalized communities and may include critical habitat or suitable occupied habitat for federally listed threatened or endangered species.

• Cultural and Heritage Resources such as pre-historic and historic properties and sites on Forest Service lands.

For values and resources potentially impacted off NFS lands, one of the most effective BAER strategies is interagency coordination with other responsible agencies, entities, and local cooperators who assist affected businesses, homes, and landowners prepare for rain events. 

While multi-agency efforts are being taken to reduce the risks to life and safety downstream from the burned area, residents in the area should develop individual plans to protect themselves and their property. 

The Forest Service and Natural Resources Conservation Service (NRCS) work together and coordinate with other federal, state and local agencies, and counties that assist private landowners in preparing for increased run-off and potential flooding and debris flows.

NRCS works with local sponsors to prepare damage survey reports for eligible sites on private lands adjacent to and downstream from affected areas.  NRCS uses these reports, along with the BAER team’s assessment report, to develop emergency measures to reduce the impacts from potential increased water and debris flows, and assist sponsors to implement recommended emergency measures (www.nrcs.usda.gov/Internet/FSE_DOCUMENTS/stelprdb1045263.pdf).

Many local county offices of emergency management promote preparedness through emergency services programs to assist the public to prepare for, respond appropriately to, and quickly recover from natural emergencies that may impact county residents and visitors. Please check your local county website for emergency preparedness for potential National Weather Service flood warnings.

Homes or businesses that could be impacted by flooding from federal land that resulted from wildfires may be eligible for flood insurance coverage from the National Flood Insurance Program (NFIP). Information about NFIP is available through FEMA at www.floodsmart.gov/, or www.floodsmart.gov/flood-insurance/why. Other flood preparedness information is available at www.ready.gov/floods.

SAFETY MESSAGE: Everyone near and downstream from the burned areas should remain alert and stay updated on weather conditions that may result in heavy rains over the burn scars. Flash flooding may occur quickly during heavy rain events be prepared to take action. Current weather and emergency notifications can be found at the National Weather Service website: www.weather.gov/.

Dolan Post-Fire BAER 2500-8 Assessment Report Released

The Los Padres National Forest received funding for emergency stabilization measures on Forest Service System lands burned by the Dolan Fire.  The emergency treatments and activities are designed to decreased possible impacts to values-at-risk from the Dolan burned area such as: life and safety, property, critical natural resources and cultural resources.  NOTE: Attached below as “Related Information” is a PDF document called “Dolan BAER 2500-8 Report_PUBLIC”.

DOLAN POST-FIRE BAER SOIL BURN SEVERITY MAP RELEASED

Burned Area Emergency Response (BAER) specialists recently completed their data gathering and verification field work of the Dolan Fire burn area.  The Soil Burn Severity map has been finalized.  Soil Burn Severity levels are Unburned/Very Low, Low, Moderate, and High.

The map shows that in the Dolan Fire area, approximately 45% of the 124,326 acres analyzed by the BAER team is either unburned/very low (9%) or low (36%) soil burn severity, while 45% sustained a moderate soil burn severity, and 10% burned at high soil burn severity.

The BAER post-fire assessment team uses soil burn severity data to identify if there are areas of concern where increased soil erosion, accelerated surface water run-off, and debris flows have the potential to impact human life/safety, property, and critical natural and cultural resources from storm events. The BAER team consists of Forest Service scientists and specialists that are considering emergency stabilization actions for those critical resources on National Forest System lands.  The BAER team shares their analysis and findings with interagency cooperators who work with private land and business owners to help them prepare for upcoming rain events.

BAER Team Leaders Kevin Cooper and Yonni Schwartz stated, “The BAER team expects erosion and run-off within the Dolan Fire area to substantially increase in watersheds that experienced moderate to high soil burn severity. In these areas, there is concern for increased post-fire run-off from steep hillslopes and channels resulting in increases in post-fire soil erosion, hyper-concentrated floods and debris flows.”

The Dolan Fire soil burn severity BAER map can be downloaded at the interagency “Dolan Post-Fire BAER” InciWeb site (https://inciweb.nwcg.gov/incident/7231) as a JPEG or PDF version under the “maps” tab.

A "Field Guide for Mapping Post-Fire Soil Burn Severity" can help with interpreting the map and can be found online at http://www.fs.fed.us/rm/pubs/rmrs_gtr243.pdf.

SPECIAL NOTE: Everyone near and downstream from the burned areas should remain alert and stay updated on weather conditions that may result in heavy rains over the burn scars. Flash flooding may occur quickly during heavy rain events-be prepared to take action. Current weather and emergency notifications can be found at the National Weather Service website: www.weather.gov/mtr/.

See document showing the acreage totals by land ownership burned by the Dolan Fire (under Photos Tab) and at the link below for related documwent.

FOREST SERVICE BAER TEAM’S

POST-FIRE ASSESSMENT OF DOLAN FIRE

A Forest Service Burned Area Emergency Response (BAER) team was established by the Los Padres National Forest to assess the burned area of the Dolan Fire. The BAER team is led by Kevin Cooper. The team coordinated with the USDA Natural Resources Conservation Service (NRCS), National Weather Service (NWS), US Geological Survey (USGS), Monterey County and other federal, state and local agencies as they assess potential post-fire impacts to the burned watersheds.

BAER surveys are rapid assessments that evaluate the burned area to identify watersheds having increased potential for post-fire flooding, sediment flows and rock slides. Since the BAER survey is a rapid assessment to assist land managers prepare the burned area for rainstorms, the team focuses on potential emergency impacts to life, and safety on National Forest System (NFS) land and share the team’s findings with the responsible downstream agencies.

BAER teams may consist of scientists and specialists including hydrologists, geologists, soil scientists, road engineers, botanists, wildlife biologists, recreation specialists, archeologists and geographic information specialists. BAER teams collect data during their burned area surveys to analyze through GIS and computer models and presents their findings along with recommended BAER emergency response actions in a BAER assessment report.

BAER teams utilize satellite imagery and specialist data to analyze and produce a map that shows the levels of burn severity on the watersheds. This is the first step in assessing potential watershed impacts from wildfires to any NFS values that may be at-risk from potential increased flooding, sedimentation, debris flows and rock slides. BAER teams produce a report that describes threats associated with the burned area’s post-fire conditions along with recommended emergency stabilization measures and actions. BAER emergency response efforts are focused on the protection of human life, safety and property, as well as critical cultural and natural resource values such as the water quality of streams and wetlands on NFS lands.

BAER reports are shared with interagency cooperators who work with downstream private home and land owners to prepare for potential post-fire flooding and debris flow impacts. Homes or businesses that could be impacted by flooding from federal land that resulted from wildfires may be eligible for flood insurance coverage from the National Flood Insurance Program (NFIP). Information about NFIP is available through FEMA at www.floodsmart.gov/.

SPECIAL NOTE: Everyone near and downstream from the burned areas should remain alert and stay updated on weather conditions that may result in heavy rains over the burn scars. Flash flooding may occur quickly during heavy rain events-be prepared to take action. Current weather and emergency notifications can be found at the National Weather Service website: www.weather.gov/mtr/.

Notification: Property Post-Fire Watershed Risk Assessments

The soils in a burn scar are highly erodible so flood waters can contain significant amounts of mud, boulders, and vegetation. The powerful force of rushing water, soil, and rock, both within the burned area and downstream, can destroy culverts, bridges, roadways, and structures, and can cause injury or death if care is not taken. Landowners who have experienced severe property damage due to natural disasters may be eligible for assistance to mitigate this risk. 

Property owners impacted by the Carmel, Dolan, and River Fires are eligible for a free assessment of post-fire debris and watershed risks on their property. The assessment is conducted by the Natural Resources Conservation Service through the Emergency Watershed Protection Program. To schedule an appointment, contact Desi Ramirez at (530) 902-2913.

More information about debris flow and watershed risk can be found here: https://www.co.monterey.ca.us/government/departments-a-h/administrative-office/office-of-emergency-services/recovery/watershed