Announcement for Proposals (AFPs)

February 23, 1999

A. Program Description

The Joint Fire Science Program (the Program) is a partnership of federal wildland management agencies with a need to address problems associated with accumulating wildland fuels (combustible material, generally living and dead plant materials) on lands administered by the USDA Forest Service and four bureaus in the Department of the Interior (Bureau of Indian Affairs, Bureau of Land Management, National Park Service, and the U.S. Fish and Wildlife Service). The U.S. Geological Survey is also a cooperator. For the purposes of this Request for Proposals, "wildlands" are considered to be forests and rangelands.

Wildland fuels have been accumulating during at least the past half century due to wildland fire management policies, forest management and other wildland management practices, and other factors. The additional fuels contribute to intense fire behavior and increase the resistance of fires to control. Consequently, property and natural resources have been destroyed, costs of fire management have escalated, fire dependent ecosystems have deteriorated, and the risks to human life are high.

The Congress, agency administrators, Program cooperators, and others have recognized that the accumulation of wildland fuels must be reduced in order to reduce the human threat from fire and maintain natural resource values. Congress directed the Department of the Interior and the USDA Forest Service to develop a Joint Fire Science Plan to provide science-based support to land management agencies as they address this need. The Program was developed based on the Joint Fire Science Plan to help ensure that cooperating Federal land management agencies expedite scientifically sound, efficient, systematic, and effective solutions and monitoring programs that cross agency jurisdictions and fuel types.

The Joint Fire Science Plan addresses four issues critical to the success of the fuels management and fire use programs. These issues are:

1. The need to develop and implement consistent interagency fuels mapping and inventories with common classifications and resolution within ecosystems.

2. The need to evaluate and compare fuels treatment practices and techniques, including prescribed fire, thinning and other mechanical methods, increased utilization of biomass, and no treatment.

3. The need to develop treatment schedules, determine the frequency of subsequent treatments, and coordinate treatment schedules among agencies.

4. The need to establish compatible interagency processes and procedures for monitoring, evaluating, and reporting fuels treatments.

For further background on the goals of the Program, those considering submitting proposals and other interested parties are encouraged to review the Joint Fire Science Plan which is available via the Internet at: JPSP_Home. In addition, the Program issued a Request for Proposals in June 1998 and subsequently selected and funded 24 projects. A list of the funded projects can also be found at the above website.

This Request for Proposals contains four Task Statements for which proposals are requested. Proposers are asked to ensure that a Federal cooperator participates in development and submission of proposals. Proposals must be received by the close of business on April 23, 1999 to be considered at this time. Questions should be directed, and proposals forwarded to:

Dr. Bob Clark
Program Manager
Joint Fire Science Program
National Interagency Fire Center
3833 S. Development Ave.
Boise ID 83705
phone (208) 387-5349
facsimile (208) 387-5960

Electronic submissions are acceptable provided they are followed by a hard copy of the title/signature page with original signature(s). The signature page must be received by April 23, 1999. Please e-mail electronic proposals, in Wordperfect, Microsoft Word, or Rich Text Format, to b1clark@nifc.blm.gov. (Please note that the e-mail address contains a "one" rather than an "el" in the name.)

B. Areas of Interest for Proposals

This Request for Proposals contains four separate tasks, and proposals are solicited on each of the tasks. In some cases it may be appropriate for proposals to respond to more than one task statement.

Task 1: Compare or model economic impacts in order to evaluate wildland fuels treatments or planning processes.

One of the key areas in which adequate information is lacking for long-term planning of fuel management strategies and comparison of techniques is the area of understanding, predicting, and modeling the economic costs and effects of alternative treatment approaches. As fuel management programs expand, economic information and understanding will become increasingly important to the planning processes. One of the concerns often expressed is that of impacts of large-scale treatments on local economies, and the existence of necessary infrastructures to take advantage of potential economic benefits of fuels treatments (especially those involving mechanical removal). Economic impacts of prescribed fire and wildfire (e.g. property damage, smoke effects on human health or on recreation) are also of concern. Methods are also lacking for adequately quantifying non-commodity benefits or losses from fuels management treatments.

Proposals are requested that address comparison or modeling of economic impacts of alternative fuel management treatments or treatment planning processes and methods at site, landscape, or national levels. Fuel management treatments considered should include prescribed fire, mechanical treatments (thinning, small-diameter biomass utilization, on-site disposal/soil incorporation of biomass), wildfire, any combination of these, and no-treatment options. Treatment planning processes could include alternate methods of assessing and mapping fuels or fire hazard (e.g. using combinations of ground-based inventory/sampling and remote sensing). Proposals are encouraged that include consideration of valuation of non-commodity resource benefits/losses, impacts on local/regional economies, and consideration of national (cross-ownership) applicability of methods and results.

Task 2: Evaluate social understanding and acceptance of different fuel treatments, and approaches to include social considerations into planning processes.

Social aspects are integral to future direction, planning, and implementation of wildland fire and fuels management, but are not well understood. To help managers and specialists understand and incorporate social aspects into wildland fire and fuels management activities, the Joint Fire Science Program is requesting:

a) Proposals which develop or refine methods to take advantage of wildland fire situations that present the opportunity to assess public perception, understanding and acceptance of prior fuel treatment and fuel management activities immediately after the wildland fire event and at appropriate time intervals following the event (See also Task Statement 4);

b) Proposals designed to identify factors that determine the level of acceptance or nonacceptance of fuel treatments (including fire and alternative methods) by communities or groups; or

c) Proposals designed to identify and compare how groups or communities make decisions about the acceptability (costs and benefits) of various fuel treatments versus wildland fire costs and possible benefits, and to identify factors which might lead to exportability of methods of group or community decision making.

Task 3: Develop, evaluate, or compare methods or approaches to incorporate wildland fuels management information into landscape scale land use and planning processes.

The cooperating federal wildland management agencies have embarked on an ambitious effort to reduce wildland fuel loadings, especially in threatened areas and fuel types. To fully embrace the goals of increasing prescribed fire and other fuels treatment applications, particularly on a landscape scale, fuels and fire management need to be fully integrated and incorporated into land use planning processes. The Program is seeking proposals that contain analysis of potential approaches and recommendations on how best to proceed in tackling this important and difficult part of the fuels management problem. Because this is a very complex problem, three critical components have been identified: data collection; landscape-level management strategies; and implementation tools. Proposals may include all or part of these three components. Proposals must seek to identify core informational needs important to all fire managers which may be accomplished through the completion of workshops, synthesis papers, comparisons of existing or proposed methods, or development and testing of new techniques. Developed information will need to cover a variety of fuel types, be applicable across agency boundaries, and cross traditional research boundaries to provide maximum utility for managers.

Task 4: Projects that require rapid response to obtain critical fuel management-related information following multiple or large-scale fire incidents.

Certain types of information on effects of fuels or fuel management activities can best be obtained if a mechanism is available for rapidly mobilizing teams to begin data collection during or immediately following wildland fires. Certain large-scale events can provide unique opportunities for comparisons among fuel treatments, fire management treatments, or social responses on a landscape scale. Multiple fire incidents (e.g., Yellowstone National Park in 1988 and Florida in 1998) and/or large single-fire disasters (e.g., Oakland/Berkeley Hills Incident in 1991, Sunrise Incident on Long Island, NY in 1995, and Miller's Reach Incident in Alaska in 1996) can provide unique opportunities for study and comparison of treatment effects on ecosystems, environment, fire behavior and operations, social perceptions, and other factors. Critical data may be lost if advance planning and funding for a timely research response is not in place. Often, by the time funding is obtained, precipitation events, faded memories, changing seasons, and other factors have masked or destroyed important information. The intent of this task statement is to solicit proposals that develop, in advance, mobilization plans and study methods to enable rapid response after wildland fire incidents that provide opportunities to obtain important, time-dependent data relevant to goals of the Joint Fire Science Program. Specifically, proposals that would document, analyze, and evaluate temporal and spatial data related to fire behavior, the fire environment, fire effects, socioeconomic indicators, air quality, and social or economic factors relating to fuel conditions or fuel management are encouraged. It is expected that such information would be valuable in determining tradeoffs between fire intensity, severity, and effects; cost effectiveness of different management strategies; mitigation of risks to human health and safety; impacts of different fuel treatments; etc. Projects are expected to comprise unusual opportunities to obtain information on large, single events or a series of events that allow for internal "replication" of physical, biological, social, or economic aspects of fuels treatments. Proposals should include decision criteria that would be used in determining whether a specific incident provided the necessary fire characteristics and diversity of fuel treatment, fire effects, or other conditions to meet study objectives.

The Program invites proposals that would, following selection and award, remain in effect for two years from date of approval. Principal Investigators of approved projects would need only to obtain verbal concurrence (to assure funds are available) to initiate the project following onset of the incident(s). It is anticipated that such approval could be provided within 48 hours, and the Principal Investigator would be expected to implement the approved proposal in time to capture the time-dependent data. Only projects requiring the collection of time-dependent data would be funded in this manner. Initial funding will be limited to a maximum of $50,000.00. It is expected that scientists' salaries would be contributed to the project unless approved in advance by the Governing Board. Approval of proposals will not constitute agreement to fund addition work on the same project. However, projects which clearly fit into the Joint Fire Science Plan or Strategic Plan may be asked to develop longer range proposals after-the-fact; such projects may be funded competitively or non-competitively, in whole or in part, at the discretion of the Joint Fire Science Program Governing Board.

C. Format for Proposals

Overview of the Proposal Format

The full proposal should specify rationale, objectives, methodologies, and deliverables in sufficient detail to allow an informed peer to assess the proposal's validity in addressing one or more task statements in the Request for Proposals (RFP). The proposal should also identify criteria by which success of the project can be determined. The proposal text and accompanying tables and figures should be limited to 12 pages. Complete annual and total budgets and a firm timeline for deliverables must be included, as well as a mechanism for "technology transfer" to appropriate end users. The proposal also provides a record of management responsibility and accountability for various aspects of the project.

Title Page

The following format should be used for the title page (not to exceed 1 page):

Project Title:

Principal Investigator(s):

Affiliation:

Address:

Telephone/Facsimile Number(s):

E-mail:

Duration of Project:

Annual Funding Requested from the Joint Fire Science Program: $ ______________

Total Funding Requested from the Joint Fire Science Program: $ _______________

Abstract: Summarize the proposed project in a brief abstract not to exceed ½ page. The abstract should include the justification for the proposed project in relation to one or more task statements in the Request for Proposals, objectives, appropriate methodology, and applicability of results.

E-mail or facsimile proposals are acceptable provided that the e-mail or facsimile transmission is followed by a hard copy of the title page with original signature(s). If hard copy is provided only 1 copy is necessary.

Introduction

An introductory section should include:

1) Project Justification. A summary of the issue(s), why the project needs to be done (relevance to task statements in the Request for Proposals), and benefits derived.

2) Project Objectives. A statement of the project objective(s) must be clearly stated and measurable. This should include a brief statement of the hypothesis to be tested (if applicable), what information or project will be provided at the end of the project, and how the information or product can be used to resolve the issue stated in the task statement(s).

3) Background. This section includes a concise review and synthesis of existing knowledge and previous research or other pertinent background information in the project task area.

The introductory section is intended to provide peer reviewers and the Governing Board with evidence that the proposed work compliments previous and on-going work and that the work is applicable to task statements in the Request for Proposals. Although the literature may be extensive, the synthesis should generally include reference to no more than about 15-20 of the most important and/or most relevant sources.

Materials and Methods

This section should describe procedures proposed for conducting the project in sufficient detail that a knowledgeable reviewer could understand the process and that a peer could replicate the project. A brief description of the study sites (as applicable) should be included.

Project Duration

Proposals will generally not be funded for longer than two years although requests for extensions or additional work may be considered.

Budget

The proposed budget should be provided in sufficient detail to identify indirect costs and related surcharges, to separate labor costs from operational costs, and to identify salaries associated with funded scientists. Annual costs should be provided. Separate line items for "capitalized" equipment should be included. Outyear projections should be included for multi-year proposals.

Deliverables

Provide specific details on the information or product(s) that would be provided by the proposed project, and realistic time tables for delivery dates. It is expected that all final products will include an electronic version suitable for distribution, posting, etc. Descriptions in English units, with metric equivalents in parenthesis, are required. Annual progress reports are required.

Technology Transfer

It is imperative that information or products reach field managers in a useful form. Therefore, each proposal should include a description of how the "technology" would be transferred to the field.

Qualifications of Investigators

Include Curriculum Vitae for principal investigator(s) and at least 1 major collaborator. These should reflect recent, relevant experience and publication(s) and should not exceed 2 pages.

Checklist for Proposal Submissions

Does the proposal:

* include an introduction or background section that includes the specific objectives of the project and describes how the proposed work is relevant to one or more task statements in the RFP?

* include a list of cooperators and their proposed contribution, including the original signature of the principal investigator and an authorized signature from a cooperating federal unit (See Proposal Format, Title Page)?

* include a relevant Curriculum Vitae of the Principal Investigator(s) which demonstrates ability to complete the proposed work?

* include a review and synthesis of related past and current literature and work?

* include an adequate description of the specific location of the proposed work?

* include a description of the materials and methods of the proposed work including (as appropriate) experimental design and statistical analysis(es)?

* include a detailed annual and total budget, including identification of salaries and indirect costs?

* include a "Justification of Need for Salary Support," approved by appropriate authority, if needed? (See Salary Policy Section)

* include a description and cost of equipment which needs to be purchased to support the work?

* include a list of deliverables with proposed dates of delivery?

* include a technology transfer mechanism?

D. Review and Evaluation of Proposals

The following factors will be considered in reviews and evaluations of proposals to the Joint Fire Science Program:

1. How well does the proposal address one or more specific task statements identified in the RFP?

2. Does the proposal follow the requested format and include all the requested information?

3. Will the proposed work provide information or products that are useful across agency jurisdictions, fuel types, and geographic areas?

4. Does the proposal provide for adequate transfer of information or products, consider general availability and usefulness of proposed technology, and, as appropriate, provide for a feedback mechanism to the study team for product testing and improvement?

5. Does the proposal provide for adequate collaboration among agencies, between fire and land management personnel and researchers or other collaborators, and between disciplines to ensure broad integration of existing knowledge and approaches as well as applicability of results and recommendations?

6. Are study approaches or design and statistical analysis(es) appropriate and adequate to meet stated objectives?

7. What are the qualifications of the team to do the proposed work? Are adequate institutional resources and support available?

8. Are proposed timeframes and budget reasonable and adequately justified, including budgets for proposed sub-agreements?

9. If formal cooperative arrangements are proposed (e.g., with universities or other non-federal organizations), is there evidence that these will be feasible and agreeable to the cooperators?

E. Indirect Costs and Salary Policy

Indirect Costs

The Program recognizes the need of participating organizations to recover reasonable indirect costs. Indirect costs up to 15 percent (for the unit performing the work) may be included in proposals without detailed justifications, however, any indirect costs exceeding 15 percent must be justified. Similarly, indirect costs in excess of 10 percent on pass-through arrangements from federal units to cooperating federal or non-federal units must be justified. The Governing Board of the Joint Fire Science Program reserves the right to negotiate budget amounts and deliverables (including indirect costs over 15 percent) with proposing organizations.

Salary Policy

Normally, salaries of permanent full-time federal employees are expected to be provided by their agencies. This is also true of university faculty on 12-month tenure-track appointments. These employees are already fully funded by their institutions. However, the Governing Board recognizes that there can be mitigating circumstances arising from the need to fill in behind these employees when they are reassigned to Joint Fire Science Program funded activities, or due to policies of individual organizations. In such cases, the program may agree to fund salaries of permanent employees. A brief justification must be included in the proposal, and the justification must be certified by an appropriate institutional authority, other than the Principal Investigator or other cooperator on the proposal, at the employee's organization or institution. The format provided below should be used for the certification. In addition, permanent employee salary costs must be explicitly identified in the project budget. The Program requires no special justification (other than a brief description of the need for the position in the budget justification section of the proposal) for funding temporary or term employees, post-doctoral employees, or graduate or undergraduate students.

Certification to the Joint Fire Science Program
Justification of Need for Salary Support

I hereby certify the attached Justification of Need to provide temporary salaries for full-time permanent employee (s)_____________________(list name of employee(s)) is necessary and appropriate to enable him/her (them) to fully and directly participate in the proposed project.

I understand that salary funding for this/these employee(s) directly involved in the proposed project is temporary and will not be provided beyond the duration of the proposed project.

Signature____________________________________ Date________________

Title _______________________________________