Feral Jundi

     How do you apply standards and some kind of organization to a contracting industry that works in war zones? Here is a look at how another industry that deals with a very dangerous environment called fire, has worked out the problem. The Federal Fire Services. (I also posted this as a comment over at Jake’s site, and figured this needed a home here as well.)    

     The one experience I have with this, was when I was a smokejumper, dispatcher, and Incident Commander Type 4 in the federal fire services.  The government uses contractors to support fire operations on a regular basis–in fact they are highly dependent on them.  It is also a system that works.

     The fire industry is a lot like the war industry the more I think about it, and the fire industry went through the same problems of standardization.  The government had to figure out what was a governmental task and what could be contracted out in fire.

     Smokejumpers, Helitac, and Hotshot crews are still all government controlled, as well as most of the upper level Incident Command positions.  But these are areas that are constantly tested for possible privatization.  Although my belief is that those functions should remain governmental, and most agree on that in this industry.  But still, there are a lot of functions that can be contracted out for forest fire operations. Aviation stuff, like helicopters and fire bombers, to camp kitchens, to communications trailers, to hand crews and engines that help to mop up on fires or even assist in initial attack on a fire.  The Incident Commander of that fire makes the final call on all of it, and they determine if that company or federal/state unit is an asset or liability.  They can also kick people off of fires, or set up training for the various management positions for anyone on that incident.  

    But back to the ‘why’ we use contractors. The size and speed of fires is so unpredictable, it is more practical to have a contracting capability as well as government capability in that locality to properly respond.  The government also has agreements with state agencies as well, to pull in resources to fight fires.  Everyone assists everyone for the most part, but contracting is a very much needed element of those operations and it works because of stringent standardization and qualifications system.  And if the IC doesn’t want that resource, and for whatever reason, they could just kick them off the fire.  Basically, the contracts and memorandums state this chain of command reality, and what the IC says, goes.  It is the only way to run an operation, and it boggles my mind why we are not more organizationally set up like this in places like Iraq or Afghanistan.  

     Now for details.  For a fire, you might see a tent city be completely  built in a matter of days, to support a fire operation.  These things are built by federal and contractor resources.  Federal guys usually manage the logistics of it, and the contractors just do what they are told to get it done.

   Everyone on that fire must have a radio that is approved by the government.  The Type 2 Contractor Crew or Engine Boss must have a radio that can be used to communicate with the IC of the fire and with Dispatch.  They are also required to have the batteries to support that radio, and they answer to the IC of that fire.  The IC tells them where to go, what to do, and gives them guidance through that crew’s chain of command(like a Crew Supervisor).  That IC can also release them from the fire at any time, and for whatever reason.  The IC also has the right to expel that crew or engine if they are screw ups or if they have done something illegal.  You get the picture, the IC has the last word on fires. Hell, he could kick someone off of a fire for not having their nomex fire shirt on–you get the picture.  

   What is cool though, is that the IC does not micromanage that contractor crew.  They tell them what their assignment is, they give them a briefing of the incident, and coordinate radio stuff, and then they are let loose to get the job done on that division of the fire.  The IC might check up on them at any time, either physically or through the radio, and that crew must answer back and give a status report.  That is how it works.  The IC might also assign a Division Boss to be in charge of the contractor crew.  So now that crew answers to that Division Boss, who in turn answers to the IC.  The Division Boss can certainly be instrumental in getting a crew kicked off a fire, if they are screw ups, and the IC depends on the Division Boss to let him know if there are problems. 

     On the fireline, a federal Incident Commander will request resources through a federal dispatch center, and then that dispatch center locates that resource and coordinates the deployment.  Whatever is available, is what is dispatched.  The priority of dispatch is federal resources first, then state, then contractors.  But that IC could get a federal hand crew or contractor hand crew, and especially during a really active fire season where resources are thin.  What makes this work, is a standard of quality and an adherence to Incident Command for all involved in that dispatch.  The dispatcher, the IC, the hand crew or engine all know what is Incident Command and how fire fighting operations work.

     Before a contractor hand crew or what we call a Type 2 Handcrew can even play with the federal government, they must be certified and meet a standard.  These standards are developed by the federal government, with input from the private industry.  But for the most part, it is all the feds on this one.  So what do they require of the contractor–no matter if they are a Type 2 crew or run a kitchen at the fire camp?

     Well one component is IQCS, which tracks certifications and qualifications for everyone.  If you are not in this system, and given the thumbs up to play, you will not be going anywhere.  This is the backbone of the system.

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IQCS is:

     The Incident Qualifications and Certification System (IQCS) is an information system that tracks training and certifications for Wild land Firefighters.

     IQCS is an Interagency application that allows the sharing of Wild land Firefighter training and certification data across all involved agencies (BLM, NPS, BIA, FWS, and the USFS). IQCS also provides All Risk (i.e. oil spills, HAZMAT, hurricane response, etc.) tracking functionality to personnel that perform emergency response duties.

     This project combined the legacy Federal qualification systems into a single Interagency application. IQCS migrated data from the Department of the Interior Mainframe Shared Applications Computer System (SACS) that managed qualifications for the four DOI Bureaus associated with Wild land Fire and it integrated 160+ separate qualification databases managed by individual Forests in the US Forest Service. The system also provides the ability in the future to incorporate data from each of the 50 State maintained qualification systems.

The four major functions that IQCS performs are as follows:

   1. Certification Standards Management: IQCS contains the Wild land fire incident response position performance standards and their respective qualification and certification requirements.

   2. Training Management: IQCS can interface with LMS’s or provide stand-alone abilities for course/offering descriptions, learning objectives, pre-course requirements, class schedules, student registration and class participation information.

   3. Workforce Analysis: IQCS can report and forecast the disposition, status and deficiencies of all tracked positions from any agency in the incident response community; using a snapshot up to a 3-5 year projection.

   4. Incident Responder Management: IQCS tracks personnel information related to qualifications and incident history that includes information such as: positions, position performance, training, physical fitness status, and external warrants.

IQCS Link 

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    The other component of the system, is a yearly fire fighter refresher course that everyone in the government and contracting community must go through.  This is to insure people do not forget what the learned when they first went through this course.  It is also to insure that everyone is up on their knowledge of the Incident Command System.  They learn the language and structure of ICS so they (meaning contractors mostly) know how to use the chain of command at a fire camp.  The goal with this, is to make sure all individuals involved with that fire operation, are fit enough and knowledgeable about how these operations run, so they are not a liability out there.

    I also mention fit, because the government actually conducts a work capacity test as a condition of work for all involved.  Usually the standard is marching three miles with or without 45 lbs. on your back, and for time.  For more stringent type duties on the fire line, you wear the pack(45 lbs) and do this in 45 minutes for three miles on flat ground. If you are a logistics guy that works in the camp or office during a fire, all they want to know is if you can walk three miles.  They just want to know that you are reasonably fit for the job.  As a smokejumper, I also had to pass an agency specific PT test, and that was the challenging one.  But if I passed the Work Capacity Test, I was technically certified for being on the fire line.  In IQCS, if I wanted smokejumper or SMKJ on my red card, and to do the job of smokejumping, I had to pass the national standards for smokejumping (PT test, parachute refresher, etc.).    

     The fire material taught, is all based on the fire line handbook and the industry best practices for fighting fire.  That is determined by the federal government, and all course work about command and control or tactics and strategy all stem from this.

     Also the government determines equipment standards.  Nomex clothing, to chainsaws, to trucks, the contractor knows exactly the standard for fire operations, if they want to contract with the federal government.  And most states adopt those same standards, because many states have agreements with the feds for mutual fire fighting operations.  If I am a state guy, and I want to fight fire on a federal operation, I have to meet federal standards first.  

     So if I am a contractor, and I want to contract my services out to the government, they very basic stuff I have to accomplish is to be certified in IQCS, take work capacity test, and go through a 40 hour fire refresher course. I must have the correct equipment and clothing, and everything is to a standard.  If I own a contracting company, I must insure that my company meets the standards of the federal government, and when I sign a contract with the government, I am saying that my company is compliant, and will be compliant if called upon for a fire.  

     And all of that information must be in the IQCS system.  The physical proof of certification is what is called a red card.  It is a red license, that says you are a firefighter and it is signed by an administrator that can vouch for you.  Most importantly, you must have this thing on you at all times.  

     If you are in an incident, and you were in charge (fire burn over that kills several of your teammates for example), your IQCS will be the first thing examined.  Did you get the appropriate fire refresher training?  Were you certified to be a Incident Commander.  How much experience did you have(IQCS tracks this).  Did you have any prior incidents?  The IQCS database is the first stop in that investigation.

     On a side note, what usually happens in these fatal incidents, are Incident Commanders ignored the signs of a fire that could threaten his team, or was not using the lessons learned of past operations and/or what was taught to him in our fire refresher training.  But then there are some times where you do everything right, and still someone gets killed.  That is fire.  But it still all goes back to leadership.  A good leader is one that knows their stuff, has the courage to do what is right, and takes care of their people.  Not applying those lessons and knowledge, in the war called fire, is not good.  Standards and organization in fire fighting is a vital component of making sure everyone understands those lessons and knowledge, and is properly prepared to be on that fire. We can learn a lot from this so we can better organize and standardize our industry for the war effort. –Matt

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National Wildfire Coordinating Group  

     The Fireline Safety Refresher Task Group (FSRTG), under the direction of NWCG, 

analyzed previous refresher training reviews and their recommendations and scoped 

additional refresher opportunities.   

      The following Annual Fireline Safety Refresher Training Strategy is targeted at NWCG 

member agency employees holding Incident Command System qualifications requiring 

annual fireline safety refresher training per the 2006, PMS 310-1, Wildland Fire 

Qualification System Guide.  Agencies may determine the need for training for positions 

outside those identified in the PMS 310-1. 

     There are two phases to this strategy.  Phase I focuses on immediate implementation 

requirements.  Phase II provides long term leadership and accountability.   

      In order to encourage an engaging refresher class three areas will be promulgated 

annually.  These are the Wildland Fire Safety Training Annual Refresher (WFSTAR) 

website, an annual video, and experiential training.  Development and maintenance of 

these three diverse training tools will be maintained by their current hosts.  The Wildland 

Fire Lessons Learned Center will provide support to all three product areas.  Current 

financial support will increase incrementally over a five year period.  One position will 

be added to the NWCG Instructional Media Unit in Fiscal Year 2006 and a coordination 

position will be added to the NWCG Training Development Unit in Fiscal Year 2008. 

      Annual fireline safety refresher training may be completed in a manner and timeframe 

deemed acceptable by the agency.  However, minimum core topics should be covered 

and are outlined in this strategy.  Instructors are responsible for tailoring each class and 

the core topics in such a manner as to engage the course participants.  In order to lead an 

effective refresher the lead instructor must be single resource boss qualified and unit 

instructors qualified at the firefighter type one level. 

NIFC Online

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NIMS(National Incident Management System)

The Incident Command System

The Incident Command System (ICS) is the combination of facilities, equipment, personnel, procedures, and communications operating within a common organizational structure, designed to aid in domestic incident management activities. It is used for a broad spectrum of emergencies, from small to complex incidents, both natural and manmade, including acts of catastrophic terrorism. ICS is used by all levels of government—Federal, State, local, and tribal, as well as by many private-sector and nongovernmental organizations. ICS is usually organized around five major functional areas: command, operations, planning, logistics, and finance and administration. A sixth functional area, Intelligence, may be established if deemed necessary by the Incident Commander, depending on the requirements of the situation at hand.

Some of the more important “transitional steps” that are necessary to apply ICS in a field incident environment include the following:

*recognizing and anticipating the requirement that organizational elements will be activated and taking the necessary steps to delegate authority as appropriate;

*establishing incident facilities as needed, strategically located, to support field operations;

*establishing the use of common terminology for organizational functional elements, position titles, facilities, and resources; and

*rapidly evolving from providing oral direction to the development of a written Incident Action Plan. 

NIMSOnline

FEMA IS 100 Training for ICS

Wiki for Incident Command System