STATEMENT OFBASIS, STATUTORYAUTHORITY,ANDPURPOSE
Pursuant toSection24-33.5-1203.5,C.R.S., theDirectorof theColoradoDivisionof FirePreventionandControl shallpromulgate rules as necessary tocarryoutthe dutiesof theDivisionofFirePreventionandControl.This rule is proposedpursuant tothisauthority andisintended to be consistentwith therequirementsoftheState AdministrativeProcedureAct, Section24-4-101, et seq., C.R.S.
Senate Bill13-083 directedthe Divisiontoimplementa prescribed burnprograminColorado, includingcreating minimumstandards forconductingprescribed burnson anyarea inthe state, except for prescribed burning conductedby an agencyofthe federal government,pursuant toSection24-33.5-1217.Tobe exempt fromthese standards, other usersof prescribed fire,includinglocal governments andnongovernmentalorganizationsmust adoptor have already adoptedguidelinesor standards that are insubstantialcompliance with theintentof CRS 24-33.5-1217.5 for prescribed burningunder their control.
SenateBill 13-083alsotaskedtheDivisionwithimplementingaprescribedburningtrainingprogramforthose conductingprescribed burnsinthe Stateof Colorado.The purposeofthe certificationprogramis to measure the levelofknowledge,skill, andabilities possessed byState employeesandalsotoattestthatthese individuals meet nationallyrecognizedstandards asspecified inthe NationalWildfire CoordinatingGroup’sWildlandFire QualificationSystemGuide. Thesecompetency-basedstandards permitevaluationof trainingprograms and promote uniformity in State employee trainingandskill-based qualificationlevels. SB 13-083alsodirected the Divisionof FirePreventionandControl todevelopa voluntarytrainingandcertificationprogramfor private landownersandtheir agentstosafelyandsuccessfullyplan, initiate,and complete controlled firetreatments on privatelandwithinthe State ofColorado.
The purpose of this rule is toincorporatethe provisionof SB13-083withinthe rules oftheDivisionof Fire PreventionandControl pertainingtoprescribed firesinthe Stateof Colorado.
These responsibilitiesare considered amatterof public safety;therefore the absenceof implementingrulesto carryoutthe purposeof thesestatuteswouldbecontrary tothe public peace,health, andsafetyofthe State. For thesepurposesit is imperativelynecessarythat the proposed rules be adopted.
December 9, 2014
Paul L.Cooke,DirectorDateofAdoption
Divisionof FirePreventionandControl
APPLICABILITY
These rulesandregulationsconstitutetheminimumstandards for allprescribed burningconductedin the State of Colorado,except for prescribed burning conductedby an agencyof thefederalgovernment. Tobe exempt fromthese standards, other usersof prescribed fire, includinglocal governmentsandnongovernmental organizations,must adoptor have already adoptedguidelinesorstandardsthat are insubstantialcompliance with theintentof Section24-33.5-1217.5, C.R.S. for prescribed burningunder their control.Theserulesdonot applytocontrolled agriculturalburningor controlledditch burning.
ARTICLE1–AUTHORITY TO ADOPT RULESANDREGULATIONS
1.1The DirectoroftheDivisionof FirePreventionandControl isauthorizedbythe provisionsof Section24-33.5- 1203.5, C.R.S., topromulgate rulesin order tocarryout the dutiesof the Divisionof FirePreventionand Control.
1.2Sections24-33.5-1203.5 and24-33.5-1217, C.R.S.establish the authorityandduty oftheDivisionof Fire PreventionandControl toimplementa prescribed burningprogram forthe Stateof Coloradoandto establish trainingstandards forcertified burners.
1.3The DirectoroftheDivisionof FirePreventionandControl isauthorizedtoestablishfeesandcharges
necessary torecover alldirectcoststhattheDivisionincurs inprovidingtrainingtoand processing applications for personsseekingcertificationunder the Prescribed FireProgram pursuant toSection24- 33.5-1217.
ARTICLE2–DEFINITIONS
2.1The definitions providedin 24-33.5-1202, C.R.S., applytothese rules.Ifany of the definitions provided in these rulesconflictwith NWCG definitionsof the same termsin the documents incorporatedin Article3,the definitionsof thoseterms intheserulessupersedethe NWCG definitions.The followingdefinitions apply:
“Applicant”meansa personwhohassatisfied therequirementstobeexaminedfor certificationor anentity that appliesfor recognitionas anaccreditedacademyor trainingfacility.
“BurnBoss3”means a personwhohasmet alloftheprerequisite andrequisite trainingtobecertifiedbyhis or her agency tomeet NWCGqualificationstandards tolead lowcomplexity prescribed burnprojects.
“BurnBoss2”means a personwhohasmet alloftheprerequisite andrequisite trainingtobecertifiedbyhis or her agency tomeet NWCGqualificationstandards tolead moderatecomplexity prescribed burnprojects.
“BurnBoss1”means a personwhohasmet alloftheprerequisite andrequisite trainingtobecertifiedbyhis or her agency tomeet NWCGqualificationstandards tolead highcomplexityprescribed burnprojects.
“CertifiedBurner”means anindividual whosuccessfully completestheDivision’sCertified Burner trainingand certification programandpossessesa validcertificationnumber. Wherethe term“CertifiedBurnManager”is used instate statute,this termis replaced bythetermCertified Burnerfor purposesofthese rules.
“CertifiedProctor”meansanindividual whomeets orexceedsthe requirementstobecertifiedasa written and/or practicalexaminationproctor.
“Class”meansa single meetingor sessiondevotedtoa specific prescribed fireornon-prescribedfire training objective.
“CognitiveObjective”means pertinentwritten questions, lists,or problems related to thelevel atwhicha personisbeingtested.
“Course”means anygroupingof classesor seriesof lessonsorlecturescombinedtoattainaparticular educationlevelor trainingobjective.
“Demonstrate”means toshowby actualuse. Thismay be supplementedby, orwhen actualuse isnotfeasible, replaced by, simulation,explanation, illustration,or acombinationofthesemethods.
“Director”means theDirectoroftheDivisionof Fire PreventionandControl inthe DepartmentofPublic Safety.
“Division” or “DFPC”means theDivisionof FirePreventionandControlin theDepartment ofPublicSafety.
“Firedepartment”means the dulyauthorized fireprotectionorganizationof atown, city, county,or city and county,a fire protectiondistrict,or ametropolitan districtor countyimprovement districtthat providesfire protection.
“Firefighter”means anyperson,whetherpaidorvolunteer,whois activelyparticipatingin or employed bya public or private fire service unit in thisstate.
“HighComplexityBurn”means a burnclassified as highcomplexity byNWCG’sPrescribed Fire Complexity RatingSystemGuide basedonrisk,potential consequences,andtechnicaldifficulty.
“LowComplexityBurn”means a burnclassified as lowcomplexity byNWCG’sPrescribed FireComplexityRating SystemGuidebasedonrisk, potentialconsequences,andtechnicaldifficulty.
"MasticatedFuels"meansfuels, suchasbrush, small-diameter trees,andslash,that havebeengroundor chewedintosmallpieces of woodymaterialthroughamechanicalwildlandfuelstreatmentprocess,and generally lefttocarpettheground.
“Moderate ComplexityBurn”means a burnclassifiedasmoderatecomplexityby NWCG’sPrescribed Fire Complexity RatingSystemGuide basedonrisk,potential consequences, and technicaldifficulty.
“National WildfireCoordinatingGroup” or “NWCG”meansthe nationallyrecognized groupmade upof federal andstatecooperatingagencieswhich governs nationally basedtrainingandqualificationstandards for wildland fire,includingprescribed fire. NWCG alsoincludessubcommitteesandworkingteams governedbyNWCG directors.
“Non-certified”means anapplicant whodoesnot possess avalidcertificationrecognized byDFPC.
“PhysicalDemand”meansthe workcapacity levels that areassigned toallwildlandfire management positions toquantify physicalfitnessfor aspecified position. The various levels aremeasured overa specific distance,with a defined cargoloadandefficientlyaccomplished withina specifiedtime limit andin accordancewith proceduresandstandardsestablishedbytheNWCG.
“Policies”means formal guidelinespromulgatedby DPFC concerningthemethods, procedures, andprocesses for implementingtheserulesandadministeringany certificationprogram.
“PrescribedBurning” or“PrescribedFire”meanstheapplicationof fire, in accordancewitha written prescriptionforvegetativefuels, under specified environmental conditions whilefollowingappropriate precautionarymeasuresthat ensure public safety andthat isconfinedtoa predetermined areatoaccomplish public safetyorlandmanagement objectives.Thetermexcludescontrolledagricultural burns andcontrolled ditch burns as defined inCRS 24-33.5-1201.
“PrescribedFireManagerType2” or“RXM2”meansa personwhohasmet allof the prerequisiteandrequisite trainingtobe certified by his or her agency tomeet NWCG qualificationstandards tolead moderate complexity prescribed burnprojects.
“PrescribedFireManagerType1” or“RXM1”meansa personwhohasmet allof the prerequisiteandrequisite trainingtobe certified by his or her agency tomeet NWCG qualificationstandards toleadhighcomplexity prescribed burnprojects.
“Refreshertraining”means a courseof instruction, condensed overa short periodof time, designedtoprovide trainingtopersonsforthepurposeof preparingthemfor renewalofcertification.
“Safely”meanstoperformtheobjectivewithoutendangeringor injuringoneself orothers.
“State agency”means allof the departments, divisions, commissions, boards, bureaus, andinstitutions inthe executivebranch ofstate government.“State agency”doesnotincludethelegislativeorjudicial department, the department of law,thedepartmentof state, thedepartmentof the treasury,or state-supportedinstitutions of highereducation.
“Withcompetence”means possessingknowledge,training, skills, andjudgmentneeded tosatisfactorily and safelyperformindicatedobjectives,as determined bythe examiningauthority.
ARTICLE3–GUIDES, DOCUMENTS, ANDSTANDARDSINCORPORATEDBYREFERENCE
3.1The followingguidesandstandards areadoptedbytheseregulations. The followingstandards arepublished by the NationalWildfire CoordinatingGroup,NationalInteragencyFire Center,Boise, ID83705.Copiesof these
guidesandstandards canbe obtained fromthe National Wildfire CoordinatingGroupviathe GreatBasinCache SupplyOffice, 3833 S.Development Ave. Boise,ID 83705orvia
3.1.1InteragencyStandards forFire andAviationOperations (January2013)NFES 2724
3.1.2Prescribed Fire ComplexityRatingSystemGuide (January2004)PMS 424, NFES2474
3.1.3InteragencyPrescribedFirePlanningandImplementationProcedures Guide(April 2014)
3.1.4Fire EffectsGuide(June 2001)NFES 2394
3.1.5WildlandFire QualificationSystemGuide(October 2014)PMS310-1
3.1.6NWCG Glossary ofWildlandFire Terminology (October 2014)PMS205
3.2The following policy isadopted bythese regulations. The following policyispublishedbytheColorado Divisionof FirePreventionandControl.Copiesofthispolicycanbeobtainedat 690KiplingStreet,Denver, CO 80215oronlineat
3.2.1ColoradoStatePrescribed FirePlanningandImplementationPolicy Guide(March 2014)
3.3TheDivisionshallmaintaincopiesofthecompletetextsoftheadoptedguidesandstandardsfor public inspection. Interestedpartiesmayinspectthe referenced incorporatedmaterialsduringregularbusinesshours at theDivisionOfficelocated at690 KiplingSt,Lakewood,CO80215.
3.4This rule doesnotinclude lateramendmentsoreditionsof the incorporatedmaterial.
3.5Questions,clarifications,orinterpretationofanyguidelines,policy,procedure,orstandardadopted byreferenceintheserulesshouldbeaddressedinwritingto:PrescribedFireProgramManager/Unit Chief,Colorado Division of Fire Prevention and Control, 690 Kipling St, Lakewood, CO 80215.
ARTICLE4–TYPESOFCERTIFICATION, FEES,ANDAPPLICATION REQUIREMENTS
4.1The followingprescribedfire certifications are available throughtheDivision:
4.1.1Certified Burner
4.1.2BurnBossType 3-RXB3
4.2TheDivision recognizesNWCG certificationsthat relatetoprescribedfire as referenced intheWildlandFire QualificationSystemGuideandthe InteragencyPrescribed Fire PlanningandImplementationGuide referenced inArticle3.
4.3CertifiedBurnerProgram
4.3.1ApplicationRequirements
a)Certified BurnerCourse.Membersofthe publicmustsignupforthis course throughthe vendororinstitutionprovidingthe courseonbehalfof theDivision. Informationregarding upcomingcoursescanbe obtained by contactingthe Prescribed BurnManageratthe Division.
b)Applicationfor Certification. Afteranapplicanthascompleted theCertified Burner course, final exam, andrelatedtask book, heor shemust sendthe completedtaskbookandthe fees outlined in4.3.3 totheCertificationManageratthe Divisioninorder toobtaincertificationand a certificationnumber.
4.3.2TrainingComponents.
a)TheCertified Burner Course is a20-hourcourseover threedays. TheCertifiedBurner Course will cover thefollowinginformationonprescribed fire:
1)Basic FireBehavior
2)IntroductiontoPrescribed Burning
3)LegalAspectsofPrescribed Burning
4)Developinga PrescribedBurnPlan
5)SmokeManagement
6)Prescribed BurningExercise
b)At theendof the course, the instructorwill administer a finalexam.Prospective Certified Burners whohave takenthe course andpassed theexamwith a scoreof70%orhigher will be issued a task book thatmustbe completed withinthreeyearsoftheexamdate inorderto obtaincertificationasa CertifiedBurner.
c)Prospective CertifiedBurners whoscorebelow70%onthefinal exammay retakethe exam twotimeswithout retakingthe entire course. Aminimumthirty (30) daywaitingperiodis requiredbetweenexaminationattempts.ProspectiveCertified Burners whoscore below70%on the final examafter three trieswill be requiredtoretakethe CertifiedBurnerCourse andpass the final examin order toobtaina task bookandcertification.
d)After successfulcompletionofthecertified burnercourseandfinal exam,students will receive ataskbookwhichrequires certaintaskstobeperformed inasuitablemanner under the supervisionoftheDivisionor a designatedagent.Thetask book identifiesspecifictasksthat needtobeevaluated,verified, initialed, anddatedbythe Divisionora designatedagent for each specific burnproject.Thesemultipletasks evaluate thetrainee’sperformanceandidentify any deficienciesthatmayrequire additionalprojectassignmentstocomplete. Atthe pointwhen alltaskshavebeensatisfactorily completed,thetaskbookmustbesubmittedtotheDivision with theapplicationfeeandany supportingdocumentsinorder for an applicanttoobtain certification.
4.3.3TermsandDurationof Certification
a)CertificatesexpireonJanuary1ofthe fifthyear followingissuance. Forexample,a certificate issued onJanuary 10,2015will expire onJanuary1, 2020.
b)ByissuingaCertified Burner certificationnumber, the Divisionis verifyingthatanindividual has successfullycompleted the Certified Burner Course andtask bookandis qualified to performlowcomplexityprescribed burns asdefined by NWCG’sPrescribed Fire Complexity RatingSystemGuide adopted by reference inSection3.1.2.
c)CertifiedBurnersmust completeat leasttwoseparate prescribed fireprojects tobe eligible for certification renewalatthe expirationoftheir certification.Atthetimeof certification expiration, documentationof thisminimumrequirementmustaccompanythe renewal applicationandpaymentofthe renewalfee.
d)If a CertifiedBurnerdoes notrenewhisor hercertificationwithin90 daysof expirationor if the CertifiedBurnerhas not completedthe requiredamountofprescribedburnsduringhis or her certification,thenhe or shemustretake the CertifiedBurner Courseandcompletethe associatedtask book againtoobtaincertification.
4.3.4Fees
Certified Burner Course* / $200-$500 (variesbasedonhostlocation)ApplicationFee for CertifiedBurner Certification / $30.00
RenewalFeeforCertified Burner Certificationpriorto expiration / $20.00
Reinstatement Fee for Certified Burner Certification fewerthan90 days pastexpiration / $40.00
*Note:Totheextentthatgrant funds areavailable, thesecoursesmaybe provided at noorsignificantly lower costtothe participant.
4.4BurnBossType3–RXB3
4.4.1ApplicationRequirements
a)Applicantsmustsignupfor thiscourse throughthevendororinstitutionprovidingthe course onbehalfof theDivision. Informationregardingupcomingcoursescanbeobtained by contactingthePrescribed BurnManager at theDivision.
b)ApplicantsfortheBurnBossType3Certification mustpossessthe followingNWCG qualifications:
1)RequiredTraining:IntermediateWildlandFireBehavior(S-290)
2)RequiredExperience:
i)SatisfactoryPerformanceas anIncidentCommander, Type5(ICT5);or
ii)FirefighterType1(FFT1)andSuccessful positionperformanceas aPrescribed Fire BurnBoss Type3 (RXB3)
3)PhysicalFitnessLevel- Arduous
4.4.2TrainingComponents
a)TheBurnBossType3 Course is the same20-hourcourseover threedays astheCertified Burner Course. TheCoursewill cover thefollowinginformationonprescribed fire:
1)Basic FireBehavior
2)IntroductiontoPrescribed Burning
3)LegalAspectsofPrescribed Burning
4)Developinga PrescribedBurnPlan
5)SmokeManagement
6)Prescribed BurningExercise
4.4.3Fees
BurnBossType 3Course$200-$500 (variesbasedonhostlocation)
4.4.4Certification/Credentials Received.Anapplicant for RXB3whosuccessfullycompletesthecourse, exam, andtask bookmustbe certified byhis orher sponsoringagency.TheDivisionwillcertify RXB3 applicants whoare employed by theDivisionandmaycertify employeesfromother state agencieswith aninteragency agreement.
ARTICLE5–GROUNDS ANDPROCESSES FOR RENEWAL, SUSPENSION,ANDREVOCATION OFCERTIFICATIONS
5.1TheDivision, in accordancewiththe Administrative Procedures Act, C.R.S.24-4-101,etseq.,maydeny or revokeanycertificateorrefusetorenew acertificatetoany applicant for, butnot limitedto,the following reasons:
5.1.1Failure tomeet requirements specified intheserules pertainingtothe issuanceof certificates and/orthe renewalofcertification
5.1.2Any conductas described inSection5.2pertainingtogoodcausefor disciplinaryaction
5.1.3Fraud, misrepresentation,or deceptionin applyingforor securingcertification. Or intakingany writtenorpracticalcertificationexam
5.1.4Aidingandabettinganother personinprocuringor attemptingtoprocurecertificationfor any personwho is not eligible for certification
5.1.5Creatinga disturbance duringa state practical skills evaluationor astatewrittenexamination,or conductingthemselvesinamannerthat disruptsother personstakingthe examinationor preventsthe examinationproctor fromconductingtheexamination.
5.2Inadditiontothe reasons outlined in5.1,theDivision mayrevoke anindividual’s Certified Burner certificationifthe individual is assessedfifteen(15) pointsasoutlinedin5.2.1duringthe courseofany one certificationperiod.
5.2.1ViolationPoint AssessmentTable
Certified Burner initiatesaburnoutsideof prescriptionparameters basedupon morningforecast / Five (5) Points
Certified Burner obtains anauthorizationknowinglyusingfalseinformation / Fifteen (15) Points
Fire escapesfromtheprescribed areaanddoes not causedamage tothe
propertyof theCertified Burner or landowner / Three(3) Points
Anemergencyresponseagency isrequiredtotake suppressionactions
becauseof aburnled byCertified Burner. / Two(2)Points
Certified Burner failstopaysuppressionchargesonanescapedburnwithin
15 daysof receiptofsecondnotice / Three(3) Points
Certified Burner failstoidentifyormitigate smokesensitiveareas / Two(2)Points
Certified Burner burns withoutobtainingan authorization / Fifteen (15) Points
Certified Burner failstoattempt toshut down aburnafter notificationfrom
the DivisionorColoradoAir PollutionControlDivision / Five (5) Points
Certified Burner’s escapedfire causes damage tothe
property/improvementsofpersonsother thanthe CertifiedBurner / Five (5) Points
Certified Burner attemptstoburnas aCertifiedBurner without awritten
prescriptionat the siteof the burnwhile burnis beingconducted / Five (5) Points
5.2.2TheDivisionwill discover potential violationsthroughdirectinvestigation or frominformation provided by localor state agenciesor the generalpublic. TheDivisionwill investigate all allegations ofa Certified Burner committingoneoftheviolations in5.2.1. Followinga determinationthata violationhas beencommitted,theDivisionwillsendawritten notice ofviolationtothe Certified Burner’s addresson file withtheDivision. Uponreceiptofthe notification,a Certified Burner then hasthirty(30)days to respondinwritingtocontestthenoticeofviolation.The protestmay include anyrelevant information or documentationastowhy thepointsshouldnot beassessedagainstthe Certified Burner.
5.2.3OncetheDivisionreceivesa CertifiedBurner’s contestof aviolationnotice,theDivisionDirector shall determinewhether pointsshouldbe assessed againstthe CertifiedBurnerandnotifythe Certified Burner ofhis orher decisionin writingwithinthirtydaysof receiptof aCertifiedBurner’s contestof a violationnotice. Thisdecisionshall beconsidered afinal agencyactionfor thepurposesofthe Colorado AdministrativeProcedureAct, 24-4-101,et seq., C.R.S.
5.2.4If a CertifiedBurner accumulates15 pointsduringonecertificationperiod,the Divisionwill senda noticeofdecertificationtothe violator.The CertifiedBurner has 30 days fromthe datethe noticeof decertificationis issuedtoprotest thedecertificationnotice totheDivisionDirector.TheDivision Directorshallnotifythe Certified Burnerof hisor herdecisiononthe CertifiedBurner’s decertification within 30 days ofreceiptofa Certified Burner’sprotest ofa decertificationnotice. This decisionshall be considereda final agency actionfor purposesofthe ColoradoAdministrativeProcedure Act, 24-4-101, et seq.,C.R.S.
5.2.5Oncedecertified, an individual mustcompletethe CertifiedBurnerCourse andthe requisite trainingtask book inordertoberecertified as aCertified Burner.
ARTICLE6:PRESCRIBED FIRE POLICY
6.1The rulesandstandards provided inthis Article6 governprescribed burningoccurringonstate landsor conductedby stateagencies onprivatelands.
6.2TheDivisionadoptstheColoradoState PrescribedFire PlanningandImplementationPolicyGuideas referenced in Section3.2.1as theminimumstandardfor prescribed fireplanningandimplementationfor Coloradostateagenciesandfor prescribed burns conductedonstate lands in Colorado.
6.3Prescribed FirePlans.
6.3.1Prescribed fire plansdeveloped beforetheeffectivedateoftheserulesmustreceive a technicalreviewinorder toensure compliancewith the 2014 ColoradoStatePrescribed Fire PlanningandImplementation Policy Guide before theplancanbe implemented.
6.3.2Prescribed fire plansdeveloped afterthe effective dateof theserulesmustreceivean additional technicalreviewafterthree years ifthe planis notimplemented.
6.3.3Prescribed fire plansexpire fiveyears after theirapprovaldateandmust berewrittentoensure compliancewith newor modified policiesorenvironmentalchanges.
ARTICLE7: SEVERABILITY
7.1 If any provisionor applicationoftheserules isheldinvalid, allotherprovisionsandapplicationsofthese rules will remainin effect.
ARTICLE8: INQUIRIES
8.1 All questionsorrequestsforinterpretationofthese rules shouldbe submittedin writingtothe ColoradoDivisionof FirePreventionandControl,Prescribed FireProgram Manager/Unit Chief.