Appendix_A.pdf

APPENDIX A

Fire Management Plan

National Park Service U.S. Department of the Interior

Padre Island National Seashore Texas

Fire Management Plan

Padre Island National Seashore Corpus Christi, Texas

Produced by:

Padre Island National Seashore P.O. Box 181300 Corpus Christi, Texas 784180-1300

Big Thicket National Preserve Fire Management Office Route 5, Box 1308 Woodville, Texas 75979

December 2004

Table of Contents

I. INTRODUCTION

A. Authorities

II. RELATIONSHIP TO LAND MANAGEMENT PLANNING AND FIRE POLICY

A. NPS Management Policies B. Padre Island National Seashore Legislation and Planning C. The Enabling Legislation D. The General Management Plan E. The Resource Management Plan F. Wildland Fire Management Plan G. Strategic Plan

III. WILDLAND FIRE MANAGEMENT STRATEGIES

A. General Management Considerations B. Wildland Fire Management Goals C. Wildland Fire Management Options

1. Wildland Fire Suppression

2. Prescribed Fire

3. Wildland Fire Use

4. Non-Fire applications

D. Description of Fire Management Units

1. Malaquite Beach Fire Management Unit

Natural and Cultural Resources Climate Topography Hydrology Ecosystems Soils Vegetation Archeological Resources Historic Structures Fire Effects on Wildlife Amphibians and Reptiles Birds

Fire Management Objectives Management Constraints Fire History Fire Management Situation

Historical Weather Analysis Fire season Fuel Characteristics Fire Regime Alteration Control Problems Values at Risk

2. Down Island Fire Management Unit Natural and Cultural Resources

Climate Topography Hydrology Ecosystems Soils Vegetation Archeological Resources Historic Structures Fire Effects on Wildlife Amphibians and Reptiles Birds

Fire Management Objectives Management Constraints Fire History Fire Management Situation

Historical Weather Analysis Fire Season Fire Regime Alteration Control Problems Values at Risk

IV. WILDLAND FIRE MANAGEMENT PROGRAM COMPONENTS

A. General Implementation Procedures B. Wildland Fire Suppression

1. Fire Behavior

2. Preparedness Actions

Fire Prevention Activities Training Readiness Fire Weather and Fire Danger Step-up Staffing Plan Funding Source

3. Pre-attack Plan

4. Initial Attack

Malaquite Beach FMU Down Island FMU Confinement as an Initial Attack Suppression Strategy

5. Extended Attack and Large Fire Suppression

6. Records and Reports

C. Prescribed Fire

1. Planning and Documentation

Annual Activities Long-Term Strategy Personnel

Fire Behavior Computer Predictions Monitoring Critiques Reporting and documentation requirements

2. Converting a Prescribed Fire to a Wildfire

3. Air Quality and Smoke Management

D. Mechanical Fuel Treatments

V. ORGANIZATIONAL AND BUDGETARY PARAMETERS

VI. MONITORING AND EVALUATION

VII. FIRE RESEARCH

VIII. PUBLIC SAFETY

IX. PUBLIC INFORMATION AND EDUCATION

X. PROTECTION OF SENSITIVE RESOURCES

XI. AIR QUALITY

XII. FIRE CRITIQUES AND ANNUAL PLAN REVIEW

XIII. CONSULTATION AND COORDINATION

XIV. APPENDICES

APPENDIX A. References APPENDIX B. Definitions APPENDIX C. Species Lists for Padre Island National Seashore APPENDIX D. Compliance Documents APPENDIX E. Other Information

1. Fire Call-up List

2. Cooperative Agreement

3. Memorandum of Understanding

4. Interpark Agreement

APPENDIX F. Wildland and Prescribed Fire Monitoring Plan APPENDIX G. Preattack Plan (Fire Size-up) APPENDIX H. Wildland Fire Prevention Plan APPENDIX I. Risk and Hazard Maps APPENDIX J. Rental Equipment Agreements APPENDIX K. Contracts for Suppression and Prescribed Fire Resources APPENDIX L. 2001 Federal Wildland Fire Management Policy Compliance...153 APPENDIX M. Burned Area Emergency Stabilization and Rehabilitation Plan.157 APPENDIX N. Padre Island National Seashore Historical Fire Occurrences. ..158

List of Tables Table 1. Staffing Class break points Table 2. Typical firefighter response time Table 3. Additional reports and records

List of Figures Figure 1. Park Vicinity Map………………………………………………………..… Figure 2. Malaquite Beach Fire Management Unit………………………………… Figure 3. North Beach Treatment Area……………………………………………… Figure 4. Novillo Treatment Area……………………………………………………… Figure 5. Headquarters Treatment Area……………………………………………… Figure 6. Malaquite Treatment Area………………………………………………… Figure 7. Bird Island Basin Treatment Area………………………………………… Figure 8. PAIS Average Monthly Rainfall Data Figure 9. Dunes………………………………………………………………………… Figure 10. Wetlands…………………………………………………………………… Figure 11. Novillo Line Camp………………………………………………………… Figure 12. Yearly Number of Fires…………………………………………………… Figure 13. Number of Fire Occurrences by Month………………………………… Figure 14. Number of Fires by Fire Management Unit……………………………… Figure 15. Down Island Fire Management Unit……………………………………… Figure 16. Big Pond Treatment Area………………………………………………… Figure 17. Yarborough Pass Treatment Area……………………………………… Figure 18. Mansfield Treatment Area………………………………………………… Figure 19. Storm Overwash Channel and Unconsolidated Shoreline………… Figure 20. Hazard Map – North boundary to Mile Post 15……………………… Figure 21. Hazard Map – Mile Post 15 to Mile Post 35…………………………… Figure 22. Hazard Map – Mile Post 35 to Mansfield Channel…………………… Figure 23. Risk Map………………………………………………………………… Figure 24. Value Map…………………………………………………………………

I. INTRODUCTION

The significance of Padre Island National Seashore (PAIS) lies in the unique, undeveloped nature of a natural, ever-changing barrier island. Padre Island National Seashore is located along the southern coast of Texas approximately eight miles south of Corpus Christi, and is bordered by the Laguna Madre and the Gulf of Mexico (Figure 1). The natural environment of the park includes nearly 50,000 acres of fire dependent habitats dominated primarily by coastal grasses. The Fire Management Plan (FMP) will allow fire to function in its natural ecological role (as nearly as possible), restore ecosystem balance of phyric communities, and manage hazardous fuels in high-risk areas (Urban Interface) through the use of prescribed fire and mechanical treatments. The plan describes a range of appropriated management actions that are consistent with resource management objectives, public health issues, firefighter and public safety, environmental laws and regulations, activities of the area, and is based upon the best available science.

It incorporates mitigation, burned-area rehabilitation, and fuels reduction and restoration activities. Figure 1. Park Vicinity Map.

This plan complies with the Director’s Order-18 requirement that all areas with vegetation capable of sustaining a fire will develop a FMP, and uses the format outlined in Reference Manual 18-Chapter 4.

The Padre Island fire management program complies with various legislative mandates including:

• Public Law 87-712, which established Padre Island National Seashore

• Clean Air Act

• Clean Water Act

• Endangered Species Act

• Archeological Resources Protection Act

• National Environmental Policy Act (NEPA)

• National Historic Preservation Act.

The NEPA process was initiated on April 16, 2003, with an internal scoping meeting that included park administrative, fire, and resource management staff.

This meeting was held by the park’s Interdisciplinary Team, which consisted of:

Dave McHugh, Fire Program Officer, Big Thicket National Preserve (BITH) Fulton Jeansonne, Fire Effects Specialist, BITH D. W. Ivans, Prescribed Fire Specialist, BITH Jock Whitworth, Superintendent, PAIS Randy Larson, Chief Ranger, PAIS Darrell Echols, Chief, Science and Resources Management Division, PAIS Arlene Wimer, Environmental Protection Officer, PAIS

From this meeting, preliminary Fire Management Units (FMU) and appropriate fire management activities were developed, along with informational requirements that needed to be addressed. Two FMU’s were developed and included the Malaquite Beach Fire Management Unit and the Down Island Fire Management Unit.

On February 23, 2004, the Department of Interior expanded the use of Categorical Exclusions (CE) to include fire management actions. The expanded CE applies to parks conducting suppression and fuels reduction activities that meet the following guidelines:

“Hazardous fuels reduction activities using prescribed fire not to exceed 4,500 acres, and mechanical methods for crushing, piling, thinning, pruning, cutting, chipping, mulching, and mowing, not to exceed 1,000 acres. Such activities:

• Shall be limited to areas (1) in wildland urban interface and (2) Condition Classes 2 or 3 in Fire Regime Groups I, II, or III, outside the wildland urban interface;

• Shall be identified through a collaborative framework as described in “A Collaborative Approach for Reducing Wildland Fire Risks to Communities and the Environment 10-Year Comprehensive Strategy Implementation Plan;”

• Shall be conducted consistent with agency and Departmental procedures and applicable land and resource management plans;

• Shall not be conducted in wilderness areas or impair the suitability of wilderness study areas for preservation of wilderness;

• Shall not include the use of herbicides or pesticides or the construction of new permanent roads or other new permanent infrastructure; and may include the sale of vegetative material if the primary purpose of the activities is hazardous fuels reduction.”

Additional conditions for use of the CE for FMP’s include 1) the potential effects of the fuels activities should be less than “measurable” (i.e. “minor”) as determined by the park’s interdisciplinary team; 2) other cautions concerning the use of categorical exclusions found in §3.6 of the DO-12 Handbook should be considered; and 3) parks would need to do public involvement at the beginning of the planning process to scope the use of the CE, and again before approving the FMP.

The park’s Interdisciplinary Team met in April 2004 and determined that the CE can be applied due to the following reasons:

• The purpose of Padre Island National Seashore’s fire management program is to protect urban interface values, including roads, park infrastructure, historic structures, visitor use facilities, and oil and gas facilities in the Malaquite Beach FMU and Down Island FMU by suppressing wildland fires and managing hazardous fuels through prescribed burning treatments, of less than 4,500 acres each and mechanical treatments of less than 1,000 acres each. Mechanical treatments may include mowing, grass trimming, or the application of herbicides along road shoulders and around structures. Limited suppression response to meet wildland fire cost reduction goals will occur in the Down Island Fire Management Unit.

• The Malaquite Beach FMU includes the majority of the park’s urban interface area, while the Down Island FMU has urban interface values along the Pan Am road and Yarborough Pass area. With the exception of the urban interface areas, the remaining acreage is identified as being in Fire regime I due to frequent surface fires and a savannah vegetation structure and in condition class 2 due to vegetation that is recovering from centuries of cattle grazing.

• Partnerships with U.S. Fish and Wildlife refuges, Nature Conservancy of Texas, Nueces County Emergency Services District, Riviera and Ricardo Volunteer Fire Departments, and Naval Air Station-Corpus Christi satisfy the collaborative requirement.

The purpose of this fire management plan is to comply with agency, department, and park resource management policies and guidelines. No wilderness area has been designated within Padre Island National Seashore, and the actions outlined in this plan would not impair future wilderness suitability. Herbicide use is covered under a separate exotic plant management plan, and therefore no pesticide use is included in this plan. This plan does not include the construction of roads or sale of vegetative material.

The interdisciplinary team determined that potential effects from fire management activities permitted under this plan will likely be negligible or minor, and short in duration. This preliminary decision is documented on the standard Environmental Screening Form (ESF) and decision memorandum (Environmental Statement Memorandum ESM03-2), which are located in Appendix D. Public scoping was performed between July 15, 2004 and August 15, 2004 through a notice published in the Corpus Christi Caller Times on July 15, 2004. All public comments provided to the park were in favor of a FMP as long as the beach was not closed to vehicular traffic.

As part of the NPS’s external scoping process, discussions were initiated with the U.S.

Fish & Wildlife Service, Texas Parks and Wildlife, and the Texas Commission on Environmental Quality to determine if any natural resources would be affected by the park’s hazardous fuels reduction program or suppression activities associated with wildfire response. No resources were identified through these discussions. Through the process of completing the Environmental Screening Form, no cultural resources would be affected by proposed hazardous fuels reduction or wildfire suppression activities and consultation with the State Historic Preservation Office was not sought.

Based on the assessment of resources likely to be affected through the proposed fire activities identified in this document, the Categorical Exclusion for hazardous fuels reduction was selected to ensure park compliance with the National Environmental Policy Act.

The FMP was reviewed by the Intermountain Regional Office to ensure that the plan is comprehensive and accurate. The plan was reviewed by L. Dean Clark, regional fuels specialist, Larry Helmerick, prevention education specialist, and Lisa Hanson, NEPA/Sec. 106 Specialist. Reviewer comments were incorporated and are included in the plans administrative record.

This plan will implement fire management policies and help achieve resource management and fire management goals as defined in:

• Federal Wildland Fire Management Policy and Program Review

• Managing Impacts of Wildfires on Communities and the Environment, and

Protecting People and Sustaining Resources in Fire Adapted Ecosystems – A Cohesive Strategy (USDOI/USDA)

• A Collaborative Approach for Reducing Wildland Fire Risks to Communities and the Environment: 10-Year Comprehensive Strategy Implementation Plan

• Healthy Forest Initiative

• Fire Strategic Plan

• Padre Island National Seashore’s Strategic Plan

A. Authorities The authority for fire management is broadly stated in the "Organic Act" of the National Park System (Title 16 USC 1), dated August 25, 1916:

"...The service thus established shall promote and regulate the use of the Federal areas known as national parks, monuments, and reservations...by such means and measures as conform to the fundamental purpose of the said parks, monuments, and reservations, which purpose is to conserve the scenery and the natural and historic objects and the wildlife therein and to provide for the enjoyment of the same in such manner and by such means as will leave them unimpaired for the enjoyment of future generations."

Authorities for procurement, personnel, and other administrative activities necessary to accomplish wildland fire suppression missions are contained in the Interagency Incident Management Handbook.

Authorities to enter into agreements with other Federal bureaus and agencies, with state, county, and municipal governments, and with private companies, corporations, groups, and individuals are cited in NPS-20 (Federal Assistance and Interagency Agreements).

The authority for interagency agreements is found in "Interagency Agreement Between the Bureau of Land Management, Bureau of Indian Affairs, National Park Service, U.S.

Fish and Wildlife Service of the United States Department of the Interior and the Forest Service of the United States Department of Agriculture" (1982).

The authority for rendering emergency fire or rescue assistance outside of the National Park system is the Act of August 8, 1953 (16 USC 1b(1)), and the Departmental Manual

(910 DM).

31 U.S. Code 665 (E) (1) (B) provides the authority to exceed appropriations due to wildland fire management activities involving the safety of human life and protection of property.

II. RELATIONSHIP TO LAND MANAGEMENT PLANNING AND FIRE

POLICY

A. NPS Management Policies The NPS is committed to protecting park resources and natural ecological processes, but firefighter and public safety must be the first priority in all fire management activities.

NPS fire management activities will be performed in accordance with the principles, policies, and recommendations of the Final Report of the Federal Wildland Fire Management Policy and Program Review, and with Part 620 of the Departmental Manual. Air operations during wildland fire incidents will comply with the provisions of Director’s Order 60: Aviation Management and Parts 350-354 of the Departmental Manual.

All naturally caused wildland fires may be managed to accomplish resource management goals, provided there is an approved fire management plan, and provided they do not compromise firefighter and public safety, threaten property, or violate air quality laws or regulations.

To implement NPS Management Policies governing fire management, the NPS will administer its wildland fire program in a manner that will:

• Educate employees and the public about the scope and effect of wildland fire management, including fuels management, resource protection, and prevention, hazard/risk assessment, mitigation and rehabilitation, and fire’s role in ecosystem management.

• Stabilize and prevent further degradation of natural and cultural resources lost in and/or damaged by impacts of wildland fires and/or fire management activities.

• Maintain the highest standards of professional and technical expertise in planning and safely implementing an effective wildland fire management program

• Integrate fire management with all other aspects of park management.

• Manage wildland fire incidents in accordance with accepted interagency standards, using appropriate management strategies and tactics and maximize efficiencies realized through interagency coordination and cooperation.

• Scientifically manage wildland fire using best available technology as an essential ecological process to restore, preserve, or maintain ecosystems and use resource information gained through inventory and monitoring to evaluate and improve the program.

• Protect life and property and accomplish resource management objectives, including restoration of the natural role of fire in fire-dependent ecosystems.

• Effectively integrate the preservation of wilderness including the application of “minimum requirement” management techniques into all activities impacting this resource.

NPS staff responsibilities for implementing operational policies and procedures will include the Associate Director for Park Operations and Education, the park Superintendent, and park personnel.

The Associate Director for Park Operations and Education will prepare and issue a reference manual (Reference Manual 18) to help NPS managers and field staff understand and implement Departmental and NPS policies applicable to fire management. The reference manual will contain detailed procedures emphasizing personnel safety, the use of wildland fire for beneficial purposes, monitoring of smoke behavior, and the concept of risk management.

The superintendent of each park that contains burnable vegetation will ensure that Reference Manual 18 is available in sufficient quantities to serve the needs of fire management staff within the park, and will ensure that fire management staff is adequately versed in the Departmental and NPS policies and procedures contained therein.

NPS employees will take advantage of appropriate opportunities to educate the public about the positive values of wildland fire and the manner in which the NPS manages fire to meet ecosystem management objectives.

B. Padre Island National Seashore Legislation and Planning Various documents are used that plan and guide the operations of the park. These documents address how the park and its natural and cultural resources will be managed. The basis of the park’s fire management program is addressed in these documents.

C. The Enabling Legislation Congress established Padre Island National Seashore on September 28, 1962 (Public Law 87-712) "to save and preserve, for the purposes of public recreation, benefit, and inspiration, a portion of the diminishing seashore of the United States that remains undeveloped.”

D. The General Management Plan The park’s 1983 General Management Plan (GMP) states “Padre Island National Seashore preserves a dynamic barrier island ecosystem that offers outstanding opportunities for shoreline recreation, natural history study, and contemplation of past and present uses of the coastline….This combination General Management Plan/Development Concept Plan contains an integrated set of proposals that will be carried out over the next 10-15 year period to (1) ensure the continued protection of the island’s natural and cultural resources….Natural process will be allowed to shape the barrier island with as little interference as possible. The vestiges of historic and prehistoric occupants of the island will be protected from man-caused damage but not from the effects of natural forces….The GMP/DCP reflects several basic concepts about the nature of Padre Island, the purpose of the seashore, and the character of appropriate uses. First, it recognizes that left alone the natural barrier island processes will perpetuate the unique resource values recognized by Congress and enjoyed by the public….Consequently, the island will be managed to sustain natural processes, accepting natural change as part of its evolution through time and space….The lands and waters….give Padre Island its character and value as a natural and visual resource.”

The GMP is being revised and the following goals will be incorporated:

• Manage the wildland fire program in accordance with congressional intent as expressed in the annual appropriations act and enabling legislation, and comply with applicable departmental manual and agency policies and procedures.

• Promote an interagency approach to managing fires on an ecosystem basis.

• Employ strategies to manage wildland fires that provide for firefighter and public safety, minimize cost and resource damage, and are consistent with values to be protected and management objectives.

• Restore and rehabilitate resources and improvements lost in or damaged by fire or suppression activities.

• Minimize, and where necessary mitigate, human-induced impacts to resources, natural processes, or improvements attributable to wildland fire activities.

• Promote public understanding of fire management programs and objectives.

• Organize a fire staff that can apply the highest standards of professional and technical expertise.

• Encourage research to advance understanding of fire behavior, effects, ecology, and management.

• Integrate fire management through all levels of the planning process.

• Prevent and investigate all unplanned human-caused fires.

• Protect human life and property and natural/cultural resources within the seashore.

• Minimize damages and maximize overall benefits of wildland fire within the framework of land use objectives and resources management plans.

E. The Resource Management Plan The 1996 Resource Management Plan (RMP) states:

“Padre Island National Seashore consists of approximately 130,000 acres of land and water. The National Seashore is approximately 70 miles in length and from ½ to three miles-in-width. The park is bordered on the east by the Gulf of Mexico and is separated from the Texas mainland, to the west, by the Laguna Madre, a shallow, hypersaline body of water. With the longest stretch of undeveloped ocean beach in the country, PAIS provides a rare opportunity for primitive recreation. A barrier island, Padre Island

National Seashore is a dynamic system, which was formed and is continually being shaped by the action of wind, currents, and waves. The seashore’s landscape changes from broad sandy beaches, to ridges of fore-island dunes, then to grassy flats separated by smaller dunes, ephemeral ponds, and wetlands. Back-island dunes and wind tidal flats that merge with the waters of the Laguna Madre define the western portion of the Seashore. The park encompasses tens-of-thousands of acres of pristine wetlands that are important habitat for numerous flora and fauna species. Approximately 80-90 percent of the area behind the gulf dune line, to the Laguna Madre, is comprised of a rich variety of wetlands, including estuarine emergent wetlands, freshwater ponds, wind tidal algae flats, Laguna Madre intertidal zone, lagoonal sea grass beds, and marshes.”

The RMP further identifies how the island’s vegetative communities have been altered historically. Specifically, the RMP states “The majority of vegetation in the park has been altered by various historic land-use practices, primarily the grazing of domestic livestock before the park's enactment. Consequently, since 1968 -- when all the cattle were removed from the island -- the park's vegetation communities have changed dramatically in species composition, and relative abundance (Drawe 1992). To date, the park's fire management strategies have been mainly those of active suppression.

This has greatly altered the structure and composition of vegetation communities.”

A wilderness suitability study was developed for the park, but due to present and future oil and gas development, the park was not eligible for wilderness designation.

Therefore, no park areas have been designated as wilderness.

F. Wildland Fire Management Plan The Fire Management Plan describes a range of appropriate management actions that are consistent with the resource management objectives, public health issues, firefighter and public safety, environmental laws and regulations, activities of the area, and is based upon the best available science. It incorporates mitigation, burned-area rehabilitation, and fuels reduction and restoration activities.

G. Strategic Plan The current Strategic Plan describes mission goal Ia as:

“Natural and cultural resources and associated values of Padre Island National Seashore are protected, restored, and maintained in good condition and managed within their broader ecosystem and cultural context. This goal includes the concepts of biological and cultural diversity. Broader ecosystem and cultural context includes both natural systems and cultural landscapes that extend beyond the park boundary. The cultural context also refers to those park resources to be preserved and interpreted in relationship to the historical events or cultural uses and living processes unique to the Padre Island area. Long-term goals related to the Mission Goal Ia will include the protection, restoration, and maintenance of ecosystems, rare plant and animal populations and assemblages, archeological and ethnographic resources, historic structures and objects, and research, all of which are relevant to the purpose and/or significance of Padre Island National Seashore. Long-term goals will deal with both current and future threats to natural ecosystems and cultural landscapes, the perpetuation of wilderness values and scenic grandeur, and also to seek cooperation and participation in achieving those goals with neighboring land managers, Federal and State agencies, educational institutions, and the general public to promote effective ecosystem management and to help define the NPS management strategy”.

III. WILDLAND FIRE MANAGEMENT STRATEGIES

A. General Management Considerations The primary objective of the fire management program is to allow fire to function in its natural ecological role as nearly as possible, and manage hazardous fuels in high-risk areas (Urban Interface) through the use of prescribed fire and mechanical treatments.

Replication of fire’s ecological role in maintaining the grassy barrier island habitat is essential to the health and diversity of Padre Island National Seashore. Research has indicated a need to burn excess litter during late winter or late summer to increase total production, to increase plant vigor, and to suppress the detrimental accumulations of thatch within the low coastal sands of Padre Island (Drawe and Kattner 1978) and increase species richness and plant cover coastal vegetative species (Lonard et. Al 2003).

Fire management planning, preparedness, prevention, suppression, restoration and rehabilitation, monitoring, research, and education will be conducted on an interagency basis with the involvement of cooperators and partners. Padre Island National Seashore will provide certified employees and equipment to participate in regional and national assignments per national fire level determinations. The seashore will pursue agreements with local agencies and groups including the U.S. Fish and Wildlife Service, the Nueces County Emergency Services District, Corpus Christi Fire Department, the Nature Conservancy of Texas, and civic groups for wildland fire management and urban interface actions. The seashore will coordinate necessary fire activities with the Texas Commission on Environmental Quality, Kleberg County, Kenedy County, Willacy County, and the Texas Forest Service. The Big Thicket National Preserve provides fire management assistance, oversight, and coordination to Padre Island National Seashore, through an Interpark Agreement (Appendix E).

B. Wildland Fire Management Goals The NPS is committed to protecting park resources and natural ecological processes, but firefighter and public safety must be the first priority in all fire management activities.

NPS fire management activities will be performed in accordance with the principles, policies, and recommendations of the Final Report of the Federal Wildland Fire Management Policy and Program Review, and with Part 620 of the Departmental Manual. Air operations during wildland fire incidents will comply with the provisions of

Director’s Order 60: Aviation Management and Parts 350-354 of the Departmental Manual.

All naturally caused wildland fires may be managed to accomplish resource management goals, provided there is an approved fire management plan, and provided they do not compromise firefighter and public safety, threaten property, or violate air quality laws or regulations

The objectives of the wildland fire management program are to:

• Protect human life and property and natural/cultural resources both within and adjacent to agency administered lands

• Restore fire’s function in a natural system to maintain species diversity and natural patterns of vegetation succession on the landscape scale

• Minimize damages and maximize overall benefits of wildland fire within the framework of land use objectives and resources management plans

• Manage the wildland fire program in accordance with congressional intent as expressed in the annual appropriations act and enabling legislation, and comply with applicable departmental manual and agency policies and procedures

• Promote an interagency approach to managing fires on an ecosystem basis

• Employ strategies to manage wildland fires that provide for firefighter and public safety, minimize cost and resource damage, and are consistent with values to be protected and management objectives

• Restore and rehabilitate resources and improvements lost in or damaged by fire or suppression activities

• Minimize, and where necessary mitigate, human-induced impacts to resources, natural processes, or improvements attributable to wildland fire activities

• Promote public understanding of fire management programs and objectives

• Organize a fire staff that can apply the highest standards of professional and technical expertise

• Encourage research to advance understanding of fire behavior, effects, ecology, and management

• Integrate fire management through all levels of the planning process

• Prevent and investigate all unplanned human-caused fires

These goals contribute to accomplishing regional and national strategic plans including the 10-Year Comprehensive Strategy, and the NPS Strategic Plan and wildland fire policy. Fire program goals reflect federal fire policy, the core principles and goals of the Comprehensive Strategy, and Cohesive Strategy where supported by land and resource management plans.

C. Wildland Fire Management Options

1. Wildland Fire Suppression Direct suppression actions will normally only be taken to protect life, property, park buildings, infrastructure, historic resources, and petroleum production and transportation facilities. Generally, direct attack using heavy equipment (engines) will be used along existing roads, preventing resource damage from off-road equipment use and reducing firefighter risk. It is possible that heavy equipment may travel off-road if necessary.

2. Prescribed Fire Prescribed fire will be used to control hazardous fuels in the urban interface and visitor use areas and to protect petroleum facilities. Park areas likely to have prescribed fire projects include Bird Island Basin, park Headquarters, Malaquite Visitor Center and Campground, oil and gas facilities, and existing road corridors. The use of prescribed fire for the benefit of park resources will not be addressed in this document.

3. Wildland Fire Use Wildland Fire Use (WFU) is a management strategy to achieve resource benefit from natural ignitions when weather prescriptions are defined and appropriate. Padre Island National Seashore has determined that (WFU) will not be used as a management strategy in the park’s fire management program. Little natural resource data is available about the role and affects of fire in the coastal prairie habitat. Also, compliance that is necessary for a WFU program has not been completed. An Environmental Assessment is necessary to analyze the appropriateness of a WFU strategy and its potential affects on park resources and visitors.

4. Non-Fire applications Mechanical fuel treatments (mowing & line trimmers) along some park road shoulders and around/in the Novillo Line Camp, and other park facilities, will reduce hazardous fuels and reduce accidental vehicle ignitions. Chemical treatments will be addressed in a separate Exotic Plant Management Plan, and used within the purposes and constraints identified on the chemical label (i.e. in wetlands).

D. Description of Fire Management Units Padre Island is the southernmost island in a chain of barrier islands along the Texas coast. The Laguna Madre, a shallow, hypersaline estuary, separates the barrier island from the Texas mainland. Padre Island extends from the city of Corpus Christi almost to Mexico, with Mansfield Channel splitting the island and forming the southern boundary of Padre Island National Seashore. The park is approximately 70 miles in length and varies in width from .5 miles to 2.5 miles. The rational for dividing the park into two fire management units for specific fire management strategies includes:

• Ecological factors such as vegetation type, availability of fuels, fire history, wildlife habitat, and threatened and endangered species.

• Sociological factors such as visitor use patterns, interpretive values, and public perception of fire management.

• Management factors such as accessibility, boundaries, cultural resources, petroleum facilities, fire management staff and equipment, travel time, fire management policies and constraints, and research and management information available.

1. Malaquite Beach Fire Management Unit The Malaquite Beach Management Unit is bordered on the east by the beach and Gulf of Mexico, the Laguna Madre, a hypersaline lagoon, to the west, the park’s northern boundary, and the Bird Island Basin road and the end of Park Road 22 as the southern boundary. The Malaquite Beach Management Unit encompasses the area east of Park Road 22 (from the North boundary to the 0-mile marker), and west of Park Road 22 from the north boundary to Bird Island Basin Road (Figure 2). Park Road 22, which is the main road from Corpus Christi to the park, passes north-to-south through the FMU to the Malaquite Visitor Center. The paved Bird Island Basin road and unpaved Novillo line camp road divides the FMU east-to-west.

Historically this area has had the highest occurrences of fires. It contains the largest concentration of visitors, most of the Park infrastructure, and the historic Novillo line camp. Management actions will emphasize the protection of life and safety of park staff, visitors, and fire personnel, and the protection of all structures and facilities.

The Malaquite Beach Fire Management Unit encompasses 5,018 acres, which are contained within five treatment areas:

• The North Beach Treatment Area (385 acres) is north of North Beach Access Road to the North boundary (Figure 3).

• The Novillo Treatment Area (412 acres) encompasses the area from the

Novillo Line Camp north to North Beach Access Road, and includes the Line Camp and water pumping station (Figure 4).

• The Headquarters Treatment Area (407 acres) encompasses the area north of the Headquarters complex to Novillo Line Camp, and east of Park Road 22 (Figure 5).

• The Malaquite Treatment Area (441 acres) encompasses the area between the Visitor Center and the Headquarters complex, east of Park Road 22 (Figure 6).

• The Bird Island Basin (BIB) Treatment Area (3,373 acres) is north of BIB road to the park boundary, and west of Park Road 22. It includes the visitor use and concession areas adjacent to Laguna Madre (Figure 7).

Figure 2. Malaquite Beach Fire Management Unit.

Figure 3. North Beach Treatment Area.

Figure 4. Novillo Treatment Area.

Figure 5. Headquarters Treatment Area.

Figure 6. Malaquite Treatment Area.

Figure 7. Bird Island Basin Treatment Area.

Natural and Cultural Resources Climate The climate is subtropical with long, hot summers, and short, mild winters. Spring and fall are merely transitional periods. Based on 37 years of park rainfall data, the average annual rainfall is 32.89 inches. Increasing rainfall has raised the water table and promoted dune field growths at the expense of sediment export (Kocurek, et al., 1991).

On average, September and October receive the most rainfall and December through April receives the least amount (Figure 8).

Temperatures on the island are moderated by tropical maritime air coming off the Gulf of Mexico. Although temperatures on the nearby Texas mainland commonly exceed 100° F during the summer, island temperatures are rarely above 95° F, with a yearly average of 72° F. At Corpus Christi near the northern end of the island, the temperature falls to freezing or below about 10 times per year (Dahl et. al., 1974). Freezing temperatures are less frequent south of Corpus Christi and rare on Padre Island.

Persistent southeasterly winds occur from March to September, and northwesterly winds occur from October to February. Winds typically remain out of a northerly

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Months

R ai nf al l ( in

Figure 8. PAIS Average Monthly Rainfall Data based on 37 years of rainfall data.

direction for 2-3 days before switching back to the southeast. Weather on the island is changeable and often dramatic, with high tides and winds, and sudden temperature changes. The hurricane season begins June 1 and lasts through October. Tropical storms or hurricanes are occasional, with an average of 5-10 years between hurricanes along the Texas coast.

The most recent hurricane to hit the park was Hurricane Brett in August 1999. Tidal surges push ashore on the island, erode the beach, and cut washover channels through the foredunes, thereby dissipating the storm’s energy. The foredune ridge blocks the storm surge, but it may open channels across the island. In the storm’s aftermath, water drains from the mainland and the Laguna back across the island to the gulf through these same channels, which may last longer than four weeks.

Topography Wind, waves, and currents deposit sand onto the island, which form the dominant topography. Elevations ranging from an average of 20 feet to heights of more than 50 feet along the foredune ridge (Figure 9). The majority of the park is less than 15 feet above mean sea level.

Winds may blow loose sand form the fore-dunes and beach across the island, creating active dune fields that move west across the island. Vegetation may grow and stabilized some dunes. The movement of dunes may bury vegetated areas, leaving sparsely vegetated flats or wind deflection troughs. While the typical on-shore breezes gently sculpt the sands, occasional hurricanes produce significant change.

Hydrology Generally, a freshwater lens underlies the island and overlays a lower saltwater level. Depth to freshwater generally follows the topography and averages four feet below the surface. The extent (depth) of this lens is dependent on rainfall and topography. The grassland areas contain many ephemeral ponds, which may act as firebreaks (Figure 10).

Interstitial water acts to reduce or retard heat transmission in soils. This insulating effect tends to protect roots of

Figure 9. Dunes.

Figure 10. Wetlands.

vegetation and allow recovery to proceed rapidly under normal conditions.

Ecosystems Natural processes have produced a predictable pattern of ecosystems across the island. The sequence from the Gulf of Mexico to the Laguna Madre includes the sand beach, a primary fore-dune ridge, vegetated grass flats with perennial wetlands (shallow brackish and freshwater ponds in the wind-deflation depressions), and vegetation stabilized back dunes, which are shorter than the foredunes. On the west side of the island, active dune fields blend into tidal mudflats.

Soils In 2002, the Natural Resource Conservation Service (NRCS), formerly Soil Conservation Service (SCS), initiated a parkwide soil survey. The 2002 soil survey has redefined the two previously accepted soil series for the park into nine new soil series.

The Daggerhill, Greenhill, Padre, and Pan Am series were formally included in the Galveston series. Daggerhill and Greenhill soils are vegetated, and occupy the foredune ridge, as well as vegetated dunal areas. These soils do not have a water table within six feet. Daggerhill soils contain seashell fragments and have a higher pH than Greenhill soils. Padre and Pan Am soils occupy low dunes (mounds) on the grassland portions of the island. These soils have redoximorphic depletions or a depleted matrix (“gray colors”) within 40 inches of the surface and a water table within 40 inches for some time in normal years. Pan Am soils contain seashell fragments and have a higher pH than padre soils.

The Malaquite and Madre series were formerly included in the Mustang series. The Madre series has Sodic soils (soils having a Sodium Absorption Ratio (SAR) of greater than 13 in the 10 to 40 inch control section). Malaquite soils have a Salic horizon (salinity greater than 30mmhos/cm).

The Novillo series was established for freshwater marsh areas that are in the north central portion of the island. The Twin Palms and Yarborough series are set up on dredge material islands occurring primarily along the Intracoastal Waterway and other channels dredged along the upper and lower Laguna Madre. There are two distinct soils occurring in a complex on these spoil islands. The Twin Palms series has a water table generally within about four feet of the surface. Because of better drainage, the Twin Palms series supports vegetation, such as seacoast bluestem (Schizachyrium littorale), gulfdune paspalum (Paspalum monostachyum), prickly pear cactus (Opuntia englemannii var. lindheimeri), ragweed (Ambrosia artemisiifolia), and scattered mesquite (Prosopis glandulosa). The Yarborough series has a water table within 18 inches of the surface. With this poor drainage, it supports vegetation such as seashore saltgrass (Distichlis spicata), bushy sea ox-eye daisy (Borrichia frutescens), and glasswort (Salicornia bigelovii) (USDA, 2003).

Little organic matter is present in the soils except as litter on the surface and living roots penetrating to the freshwater level. Disturbed soils, generally consisting of caliche, exist along paved road shoulders and unpaved roads and parking lots within the park.

Vegetation Island vegetation is recovering from the cattle-grazing period, which began in the 1800’s and ended in the early 1970’s. Due to a harsh salty environment, island vegetation is predominantly low-lying grasses, forbs and shrubs, and stunted oak trees that grow on low dunes (Oak Mottes). Trees are not very common in the park and primarily consist of three small oak mottes and black willows that occur near the western edge of the park near the Laguna Madre. Nearly 450 vegetation species have been identified for the park (Nelson 2000). A recent classified landcover map produced for Padre Island National Seashore identified 12 vegetative classes. These classes and their respective acreage percentage of the park include sparse vegetation (6%), emergent vegetation (15%), grassland (10%), beach (3%), urban (<1%), sand dunes (5%), washover channels (<1%), unconsolidated shore (5%), spoil islands (<1%), tidal flats (22%), and three water classifications for ponds (2%), Laguna Madre (23%), and the Gulf of Mexico (10%) (USGS 1998). by the United States Geological Survey in 1998 that identified 12 vegetative classes. Depending on fuel moisture content and surface water conditions, fire will primarily occur within 37% of the park including sparse vegetation, emergent vegetation, grassland, unconsolidated shore, and spoil island vegetation classes.

Grassland and sparse vegetation habitats in the Malaquite Beach FMU are dominated by seacoast bluestem (Schizachyrium littorale). Vegetation along the wind tidal flats is dominated by seashore dropseed (Sporobolus virginicus) and shoregrass (Monanthochloe littoralis). A list of vegetation species for Padre Island National Seashore is located in Appendix C.

The role of fire is important in North American grasslands where periodic droughts, high temperatures, and strong winds provide an ideal environment for ignition and perpetuation of fire (Collins and Wallace 1990). Fire has been one of the most important natural disturbances to an ecosystem, but has become less frequent due to the historical impacts of over-grazing on the native vegetation and aggressive fire suppression activities. Some areas currently have fuel accumulations that could contribute to detrimental stand replacing wildfires. Prescribed burning is now seen as a technique to restore the natural processes in an ecosystem. Prescribed burning can create mosaics of vegetation on the landscape (Gottfried et. al., Date Unknown). Plants have the ability to die down to underground organs, exposing only dead tops aboveground. The same adaptation is thought to protect grassland plants from fire.

Grassland fires tend to move rapidly, and although soil surface temperatures can vary from 83 to 680°C, soil is a good insulator. Thus, there is little penetration of heat more than a centimeter below the surface (Collins 1990). Soil moisture on the island is not considered a critical problem in prescribed burning due to the high insulating properties of the course sand which buffers severe temperatures (Drawe 1975).

The information available on the effects of fire on park vegetation communities is sporadic. Dr. Robert Lonard analyzed the recovery of grassland vegetation following a fire in December of 1999. Based on his research, an increase in live plant coverage and a reduction in leaf litter occurred for more than two years

The information available on the effects of fire on park vegetation communities is sporadic. Dr. Robert Lonard analyzed the recovery of grassland vegetation following a fire in December of 1999. Based on his research, an increase in live plant coverage and a reduction in leaf litter occurred for more than two years following the fire, and a return of species diversity and abundance within 71 days depending on the vegetative communities. Dr. Lonard also documented a rapid increase in grassland species diversity and richness, which surpassed non-burned areas within 51 days of the fire (Lonard et. al. 2004). Dr. Lonard studied the affects of fire on vegetation surrounding wind tidal flats and observed species richness and diversity were restored after 108 days. The primary effect of fire on tidal flat vegetative communities is the reduction in standing dead plants and surface litter. In addition, species richness of burned areas exceeds species richness of unburned areas. More species were documented in the burned areas due to emergence of several ephemeral annuals such as golden tickseed (Coreopsis tinctoria) and unidentified dicot and grass seedlings (Lonard et. al. 2003).

Research indicated that species density and diversity fluctuated over two years and more species in the burned area as a result of plant species that require more time to re-establish such as sea purslane (Sesuvium portulacastrum). Natural fire disturbance can promote patch dynamics, which in turn can enhance community diversity on a larger spatial scale (Sousa 1985).

Large accumulations of litter have occurred in recent years due to the removal of large herbivores and have caused recurrent, unplanned fires. Build-ups of large amounts of litter in grassland regions lower soil temperatures which in turn reduce bacterial activity, tie up nutrients, and slow the general nutrient cycling process (Drawe, 1975).

The vegetated dunes are critical areas for island stability and are easily damaged by human activities, including fire suppression methods. This type of vegetation (Fuel Models 1 and 2) supports moderate intensity, fast moving fires. Rate of fire spread is more dependent on wind condition than on fuel loading. Continuity of fuels is critical to fire management activities.

Invasive vegetation species on Padre Island include Kleberg bluestem, guinea grass, and salt cedar. Other species such as Brazilian pepper, oleander, date palm, and agave occur on dredge material islands in…