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Willamette NF/Eugene BLM District Aviation Plan
AVIATION MANAGEMENT PLAN
Willamette NF/Eugene BLM
2014
REVIEWED: __________________ ____________
Unit Aviation Officer DATE
REVIEWED: _________________ ____________
Regional Aviation Safety Manager DATE
APPROVED: _______________________ ____________
Regional Aviation Officer DATE
APPROVED: _________________ ____________
State Aviation Manager DATE
APPROVED: ____________________________________________________________
Forest Fire Staff Officer DATE
APPROVED: ____________________________________________________________
Eugene BLM District Manager DATE
APPROVED: ___________________________________________________________
Forest Supervisor DATE
TABLE OF CONTENTS
I. AVIATION MANAGEMENT PLAN SUPPLEMENT Page
PURPOSE OF THIS SUPPLEMENT 4
POLICY AND DIRECTION 4
PROGRAM OVERVIEW 4
Call When Needed (CWN) Aircraft
Facilities
Non-Fire Uses
D. ORGANIZATION AND STAFFING 5
Forest Supervisor/District Manager
Unit Aviation Officer (UAO)
Dispatch Center Manager
District Aviation Officer (DAO)
Contracting Officer
Project Aviation Officer
Helicopter Manager
Fixed Wing Flight Manager
Aircrew Member and Passengers
All Willamette NF/Eugene BLM Employees
E. TRAINING 8
F. AVIATION MANAGEMENT ACTIVITIES 9
Aircraft Uses on the Willamette NF/Eugene BLM District
Aerial Detection/Reconnaissance
Resource Reconnaissance
Suppression
Administrative Travel
Aerial Application – Seed, Fertilizer, Spraying
Aerial Ignition
External Loads
Law Enforcement
Other Aviation Projects
G. AIRCRAFT 10
Government Owned/Leased and Operated Aircraft
Call When Needed Aircraft
Other Agency Aircraft
End Product Contracts
Aircraft Ordering, Scheduling, Dispatching and Tracking
Financial Management and Reporting
Search and Rescue
H. AVIATION ACCIDENT PREVENTION PROGRAM 17
Personal Protective Equipment (PPE)
Risk Analysis; common to all flights
Risks and Hazards that are Common to all Aircraft Operations
Accident/Incident Reporting
I. PROGRAM AND ACTIVITY MONITORING, REVIEW, AND FOLLOW UP 22
II. AVIATION OPERATIONS PLAN
HAZARD MAPS 23
AIR SPACE COORDINATION 23
PERSONNEL DIRECTORY 24
Willamette NF/Eugene BLM Unit Aviation Officer
Unit and Regional Aviation Organization
REFERENCES 25
I. AVIATION MANAGEMENT PLAN SUPPLEMENT
A. PURPOSE OF THIS SUPPLEMENT
The purpose of this plan is to align Unit Aviation planning and operations to a national standard. This plan is designed to accompany and supplement the National/Regional Aviation Management Plans, Forest Service Manual 5700, BLM 9400 Manual, BLM National Aviation Plan, and applicable handbooks and Operational Guides to derive one complete planning document. Another purpose is to aid the user in discovering the scope of aviation services available on the Willamette NF/Eugene BLM District and the policies, regulations, and procedures to be followed while involved with the program. This plan also identifies the interagency personnel involved in aviation management and their responsibilities.
B. POLICY AND DIRECTION
The purpose of aviation management on the Willamette N.F. (WIF) /Eugene BLM District (EUD) is to provide safe, efficient and economical use of aircraft in conjunction with land management activities and fire suppression objectives. It is believed that this goal may only be accomplished with thorough risk assessment, planning and management. This document is specific to the WIF/EUD, and is the guiding document to all aviation activities on the Willamette NF and the Eugene BLM District. Only direction more specific or restrictive than that contained in parent plans, manuals, handbooks, and guides will be included. Information from those parent plans, manuals, handbooks, and guides may be included where it is important to include as a reference. This document is the basic foundation for effective mission accomplishment with minimal risk factors to aviators, participants and management.
All aviation operations will be planned and conducted under applicable direction and criteria specified in the Forest Service Manual (FSM 5700 Aviation Management), DOI 350-354 DM, Bureau of Land Management National Aviation Plan and 9400 aviation policy, Federal Aviation Regulations (14 CFR), National, Regional, State and Forest directives and plans. This plan references and supplements those plans and handbooks. Operational Guides will be utilized to supply guidelines, but do not necessarily supply policy or direction unless otherwise noted within this plan. (Many guides, such as the Interagency Helicopter Operations Guide, or IHOG, have been adopted by the USFS and BLM as policy.) Employees of the Willamette NF/Eugene BLM District will always conform to direction supplied within this plan, regardless of aircraft ownership or procurement authority. Intra-agency aircraft and personnel conducting operations on the Willamette NF/Eugene BLM District administered land will be expected to operate under standards set forth within this plan, or their home unit plan, whichever is more restrictive.
This document is only a tool with which effective planning may be accomplished. Responsibility and the corresponding authority for management is assigned to individual’s on-scene and in the dispatch section to maintain vigilance and hold to the standards established in this and other plans, in order to assure safety in all aspects of our operations. The WIF/EUD Aviation Plan is reviewed annually and updated as necessary. The aviation programs contained in this plan are all within the scope and expertise of the Unit Aviation Staff to plan and supervise.
C. PROGRAM OVERVIEW
Call-When-Needed (CWN) Aircraft: Call-When-Needed Contractors are a major supplier of aircraft services on the Willamette NF/Eugene BLM District. Services for light (Type III) helicopters are procured through the Region 6 Light Helicopter Contract. BLM missions utilize the AMD On-Call Light Helicopter Contract. The USFS Contracting Officer is located in Redmond, Oregon as a member of the Regional Aviation Group, and the Contracting Officers Representative will be designated by the R-6 Aircraft Contracting Officer. Fixed wing aircraft will be ordered in like manner from the appropriate USFS or AMD contract sources.
Facilities: The Willamette NF/Eugene BLM District maintains three permanent or semi-permanent aviation facilities; either under agreement with private and public land owners or on Forest Service administered land. The use of Oakridge Airport located in Westfir is secured by lease agreement. Helibase facilities at McKenzie River Ranger District and Santiam River Ranger Districts are located on Forest Service administered land.
Alternate helibase facilities are located at Santiam Airstrip (8S3) on the McKenzie River Ranger District.
Non-Fire Uses: Non-fire uses of aviation resources on the Willamette NF/Eugene District include; search and rescue, law enforcement, administrative flights, reconnaissance (other than fire detection flights), aerial ignition, aerial application, collection services, and special Regional flights. Non-fire projects, other than those covered in the Planned Aircraft Uses portion of this document will require an approved Project Aviation Safety Plan (PASP) before proceeding.
Ordering of aircraft, whether for fire or project work, will be channeled through Eugene Interagency Communication Center (EICC). Orders for aircraft for project work will be accompanied by an approved PASP. Employees who supervise or participate on non-fire aviation missions must meet the applicable Interagency Aviation Training (IAT) standards as required by FSM 5716.03 and 5725.06 (for USFS employees), DOI-AMD-OPM 4 and National Aviation Plan for BLM employees, as described in Section E. of this Plan. NWCG (Fire) aviation qualifications frequently match or exceed the IAT training standards. The acceptable crosswalks of approved positions are documented in the IAT Guide.
D. ORGANIZATION AND STAFFING
Forest Supervisor/District Manager
The Forest Supervisor/District Manager is responsible for all aviation activities on the Willamette NF/Eugene BLM District and has delegated their authority to the Unit Aviation Officer (UAO) to advise and counsel users of aircraft. The Forest Supervisor/District Manager is actively involved in the planning process through the UAO.
Unit Aviation Officer (UAO)
The UAO is responsible for the planning and supervision of the Interagency Aviation Program. The UAO oversees aircraft operations for compliance with policy and standards in all situations and initiates action for aircraft accident/incident reports and investigations. It is our expectation that the UAO will take action to ensure that all unit aviation programs and activities are conducted with a high regard for employee and public safety. All applicable laws and agency policies are to be adhered too. The risk assessment procedures and risk management principles to be followed are described in the PNW Aviation Management Plan, the IHOG, and/or the Interagency Safety Management Systems (SMS) Risk Assessment Workbook.
The UAO is to work closely with line and staff officers along with local fire management officials to accomplish mission objectives. The UAO is to be pro-active in the approach to all aviation issues. The UAO will provide aviation technical expertise in the interpretation of aviation policies between agencies. Any policy differences between agencies that cause conflict should be resolved with involvement of State and Regional Office Aviation Managers. The UAO will establish and maintain relations with SORO aviation managers, unit line and staff officers, and aviation personnel employed by unit cooperators. The UAO is delegated the responsibility for review and coordination of Project Aviation Safety Plans (PASPs) required for each flight operation on the WIF/EUD. When delegated the authority by the regional office, the UAO may approve PASPs as long as the concurrent plans remain within approved parameters.
This delegation carries full authority and responsibility in all aviation matters related to Resource, Law Enforcement, and Fire Operations up to and including all incidents. The UAO is authorized to stop any aviation activity which violates agency policy or direction, exhibits unacceptable risk, or jeopardizes the safety of employees or the public. This delegation does not carry the authority to deviate from any policy except in an immediate life and death emergency.
The UAO shall have a thorough knowledge of Aviation policy, regulations, manuals and guides concerning aircraft safety and use. The UAO's background shall include aviation related experience or tutorial/apprenticeship detail that includes hands on fixed and rotor wing aircraft operations as well. The responsibilities of the UAO can be found in FSH 5709.16 and the BLM National Aviation Plan. The training requirements and standards for Aviation Managers is found in the Interagency Aviation training (IAT) Guide, which
In addition to the duties in manual and handbook direction, the Unit Aviation Officer on the WIF/EUD will also be responsible for the following:
Coordinates with the Dispatch Center Manager on planned administrative aircraft use on the WIF/EUD.
Maintains coordination with other government agencies on subjects involving aviation operations.
Attends available training to maintain proficiency. Training plan should include Aviation Conference and Education (ACE) courses, Senior Level Aviation Management (SLAM), and Interagency Aviation Training (IAT) courses. Attends Unit Aviation Officer meetings and participates in conference calls.
Coordinates activities with the local FAA, military, and other concerned agencies that may operate on, over, or near the Willamette NF/Eugene BLM.
Ensures that a process is implemented to enter aircraft use data into the Aviation Management Information System (AMIS).
Reviews SAFECOMs and makes recommendations to the Regional Aviation Safety Manager when appropriate. Participates in Incident/Accident investigations as requested. Maintains SAFECOM Log.
The UAO has the responsibility and delegated authority to stop aviation activities that are unsafe or are not operating within agency policy guidelines.
Dispatch Center Manager
The Dispatch Center Manager will have a sound working knowledge and understanding of aviation management principles that includes; 1) aircraft capabilities and limitations, 2) Forest Service/BLM policies and regulations, 3) aircraft rental, contracting, and administration procedures, 4) payment procedures, and 5) knowledge of Forest/BLM aviation operations. It is recommended that Dispatch Center Managers successfully complete Basic Air Operations (S-270), the appropriate IAT courses (as listed in the IAT Guide found at www.iat.gov), and the D-312 Aircraft Dispatcher course and task book. Fire Aircraft Dispatchers are required to complete D-312 and the ACDP task book in accordance with NWCG PMS 310-1. The following duties are delegated from the Unit Aviation Officer to the Dispatch Center Manager:
Coordinates planned administrative aircraft use on the WIF/EUD. Designates a Flight Manager and briefs the individual on their duties and responsibilities.
Maintains coordination with other government agencies on subjects involving aviation operations.
Initiates actions to order an Air Tactical Group Supervisor and other contingency resources for standby during high fire danger days.
Attends available training to maintain proficiency. Training plan should include IAT courses. Completion of the USFS “System Safety and Leadership in Aviation Management” (SSLAM) is highly recommended. Periodically attends Unit Aviation Officers’ meetings and participates in conference calls as requested or needed.
Oversees the dispatch staff that receives aircraft and flight orders for fixed-wing and rotorcraft. Ensures that source lists are maintained for the approved aircraft and pilots available to the Willamette NF/Eugene BLM. Supervises dispatchers who mobilize, track, and flight follow aircraft via radio or AFF.
Performs a cost analysis between two or more Vendors and/or aircraft types to determine the best value to the government when scheduling administrative flights. Coordinates these flights with the Northwest Coordination Center (NWCC) as needed.
May periodically prepare and submit flight invoices in ABS, or delegate this task to another qualified Dispatcher.
Initiates aviation related search and rescue operations as outlined in the WIF/EUD Aviation Mishap Response Guide and Checklist. Ensures that the Guide is updated with current phone numbers and contacts.
Notifies adjoining dispatch center(s) when flight activity is occurring within five miles of a shared boundary line, or delegates this task to another qualified Dispatcher in the Center.
May brief and debrief visiting aircrews and operators on WIF/EUD aviation missions.
Oversees the Center’s process for performing airspace deconfliction and implementing Temporary Flight Restrictions.
Contracting Officer
Aircraft may be ordered under existing DOI or USFS Flight Services contracts for incidents or projects. Certain specialized projects may warrant a separate solicitation for a project-specific Flight Services contract or under an End-Product contract. The Forest Contracting Officer should consult and confer with the Unit Aviation Officer whenever the use of aviation resources is proposed in an End-Product contract to ensure that the solicitation or contract contains no language that implies governmental operational control of any aviation operation.
Project Aviation Manager
A Project Aviation Manager will be designated for all major aviation projects on the WIF/EUD. This individual is responsible for preparing a PASP and for providing supervision and management during aviation operations. Project Aviation Managers must have a working knowledge of the capabilities and limitations of the aircraft with which they are working. They must have current Agency qualifications for managing the aircraft they are working with, e.g., Helicopter Manager. The duties of the Project Aviation Manager may be delegated to a qualified Flight Manager. These duties are:
Develop PASP's and planning documents as required (see IHOG Planning Format, 3-3).
Present safety briefing to all personnel involved with the project, including the pilot(s).
Verifies aircraft and pilot are carded and ensures the preparation of load calculations and manifests.
Prepares and submits the appropriate USFS or DOI payment document (i.e. the electronic FS-122 or AMD-23 Flight Use Report).
Keep the UAO, COR, and/or Contracting Officer briefed on daily progress.
Ensure that all aerial activities are conducted in accordance with all applicable policy, direction, and law.
Immediately report aircraft accidents/incidents to the RASM, UAO, Dispatch, and submit a SAFECOM as soon as possible.
Maintain project documentation and records (i.e. pilot duty hour log, contract daily diary, etc.).
Helicopter Manager
A qualified Helicopter Manager will be assigned to all helicopter flights in WIF/EUD. Once dispatched, it will be under the control of the Helicopter Manager who is responsible to the Incident Commander or Project Manager until it is no longer needed. (See IHOG chapter 2).
Fixed-Wing Flight Manager
The Fixed-Wing Flight Manager is a Government representative, previously called the "Chief of Party," who works jointly with the pilot-in-command and passengers to ensure safe, efficient flight management on point-to-point flights. This position does not pertain to special-use aviation missions.
The Fixed-Wing Flight Manager- Special Use is a Government representative who works jointly with the pilot-in-command and Aircrew members to ensure safe, efficient flight management of missions on other than point-to-point flying, i.e.,
reconnaissance missions, aerial photo or mapping missions, and operations requiring special training and/or equipment.
Flight Managers will ensure that aircraft and pilot approval cards (or Cooperator Aircraft approvals) are in place and current, pilot and passengers/Aircrew are briefed, passenger manifests with accurate flight weights are documented and provided to the pilot and dispatch, aircraft performance and weight and balance calculations are performed by the pilot, a Project Aviation Safety Plan (PASP) is approved and in place for any (non-Point-to-Point) mission flights, flight tracking or flight following is initiated, conducted, and closed out with the appropriate Dispatch Center, and payment documents are completed and submitted.
Aircrew Members
Personnel working in and around aircraft who are essential for the safe and successful outcome of a mission flight are considered Aircrew as opposed to passengers. Aircrew members are those who are required to be on board an aircraft to actively perform a resource or mission-related function, such as reconnaissance, mapping, firefighting, etc. Aircrew members work under the direction of a (fixed wing or helicopter) Flight Manager. The training requirements and standards for Aircrew are specified in the IAT Guide found at www.iat.gov.
Passengers
A passenger is any person on board an aircraft who does not actively perform a mission related function as Flight Crew or Aircrew member. Typically, those who are transported on point-to-point charter flights are considered Passengers. On rare occasions, an individual on a mission flight is considered a “Passenger” when their presence is determined to be required or essential, but they are not performing an active mission function. IAT Aircrew training is recommended, but not required of Passengers. An example of such a circumstance would be when a Line Officer or Public Information Officer participates in an observation flight with an Incident Commander over a large wildland fire incident. In such circumstances, the loading, unloading, and briefing of Passengers will be performed and supervised by qualified Aircrew member or the Flight Manager.
All Willamette NF/Eugene BLM Employees
FS/BLM employees have the responsibility to immediately report to the appropriate official any instance of unsafe equipment or aviation operations. All employees should realize that aviation resources can be a valuable tool to accomplish resource management objectives. It is imperative that when employees consider the use of aircraft that they become familiar with the policies and procedures that apply to their participation in the given aviation activity. Employees can contact the UAO or the Dispatch Center Manager if they have questions regarding aircraft use. Those employees who utilize aircraft must attend the appropriate IAT training commensurate with the duties they perform and their specific aviation responsibilities in the organization. Any employee may terminate or refuse any flight if he or she feels the operation is being conducted in an unsafe manner or if conditions or circumstances appear to pose an unacceptable risk.
E. TRAINING
Passengers on Point-to-Point flights are only required to receive a safety briefing from the pilot. Some level of Aviation training is required for all others who fly on, work around, or supervise employees who fly or operate aircraft to accomplish agency missions. The Interagency Aviation Training (IAT) Guide found at www.iat.gov specifies the education, qualification, and currency requirements for any employee who flies on a mission flight. Required training and experience requirements for Fire related aviation positions can be found in the Wildland Fire Qualifications Subsystem Guide, 310-1 and FSH 5109.17. All agency employees are required to comply with the applicable training standards before participating in any aviation activity.
F. AVIATION MANAGEMENT AND OVERSIGHT
Effective operational planning involves identifying hazards and determining the appropriate level of acceptable risk that provides an acceptable balance between safety and mission accomplishment. The national, regional, and local Aviation Management Plans and Project Aviation Safety Plans (PASPs) are written, reviewed and approved by Line Officers to ensure compliance with Forest Service and BLM aviation policy, and to affirm that hazards and risks are appropriately identified and mitigated to the appropriate acceptable levels. Aviation Plans must be reviewed annually and revised as needed. Aviation plan approval will follow the process as defined in the Northwest Aviation Management Plan. Major aircraft use within the WIF/EUD unit involve fire detection/reconnaissance, resource reconnaissance, fire suppression, administrative travel, law enforcement, aerial application, aerial ignition and external loads.
The process for approving aviation project plans is contained in the Northwest Aviation Management Plan.
Aircraft uses on the Willamette NF/Eugene BLM:
Aerial Detection/reconnaissance: These flights may be made with either fixed or rotor wing aircraft, (fixed wing aircraft will remain above 500 feet AGL). All flights will be requested through the Center Manager. Flights will follow a flight plan filed with EICC. Other flight activities (e.g. low level military, heli-logging, etc.) will be considered when planning flight routes. Plans will include a 15-minute time interval between check-ins and should designate the individual who will monitor the flight. Automated Flight Following (AFF) may be utilized as a primary means of tracking and flight following, but does not supersede the requirement to maintain the ability to communicate with dispatch via radio.
Resource reconnaissance: These flights may be made with either fixed or rotor wing aircraft, (fixed wing aircraft will remain above 500 AGL). All flights will be requested through the Center Manager. Flights will follow a flight plan filed with EICC. Other airspace users (e.g. low level military) will be considered when planning flight routes. Plans will include a 15-minute time interval between check-ins and should designate the individual who will monitor the flight. Automated Flight Following (AFF) may be utilized as a primary means of tracking and flight following, but does not supersede the requirement to maintain the ability to communicate with dispatch via radio.
Suppression: Fixed and rotor wing aircraft may be used for initial attack and extended support of fire suppression activities. Fixed wing resources within the region normally include Air tankers in Oregon at Redmond, La Grande, John Day, Klamath Falls and Medford and in Washington at Moses Lake. Lead planes are based at Redmond Oregon, and Wenatchee Washington. Smokejumper aircraft are based at Redmond, Oregon and Winthrop, Washington. Aircraft involved in fire suppression will adhere to the same flight following procedures as described for the reconnaissance missions above. Upon arrival at or over an incident, tactical aircraft may switch to flight following with an aerial supervisor or with personnel on the ground. Dispatch must be notified of the transition.
Administrative Travel: Light fixed wing aircraft may be used for moving firefighters to fires or other personnel to training/meetings when it is the most efficient method of travel. In addition to the pilot filing an FAA flight plan, the sending dispatcher is responsible for resource tracking and informing pilots of flight following procedures (Chapter 24.3 Northwest Mobilization Guide). Pilots/Flight Managers will be instructed to check in at intermediate stops (schedule permitting) and at the destination. Authorization and documentation of administrative flights will be in accordance with the Northwest Aviation Management Plan. The Flight Manager will assure that both aircraft and pilot are properly carded for Point-to-Point transport of passengers.
Aerial Application – Seed, Fertilizer, and Spraying: Aerial application projects may be implemented with FS/BLM personnel or contracted by the job. All Flight Services Contracts will require a Project Aviation Safety Plan approved through the UAO. End-Product Contracts will not require a Project Aviation Safety Plan and the government may not implement any aviation policies nor impose any operational control when aircraft are operated under end-product. Use 5711.2, exhibit 01, to identify whether a project requires a flight services contract or an end-product contract. BLM End Product Contracts will follow the procedures found in DOI-OPM-35, the BLM National Aviation Plan, and the Northwest Aviation Plan.
Aerial Ignition: Aerial ignition projects will be planned in accordance with the Interagency Aerial Ignition Guide (IAIG). Helitorch and Plastic Sphere Dispensers are available at some local agency fire caches in the northwest, from the USFS R-6 Cache, or from local contractors. Qualified personnel will implement the project and appropriate checklists will be used. Training and qualification standards for PSD operators and Helitorch managers are found in the IHOG, Aerial Ignition Guide, and in the NWCG-PMS 310-1.
External Loads: External cargo transport by long line is considered one of the highest risk missions performed by the USFS and BLM. Safety of personnel and equipment will be the primary planning consideration. S-271 and A-219 Longline training is required for agency personnel involved in these operations. (Ref: IHOG Chapter 11)
Law Enforcement: All Law Enforcement flights involving agency personnel are coordinated through EICC. A PASP is required anytime an agency employee is flying on or directly involved with a law enforcement aviation mission. Contract helicopter pilots have the right of refusal as specified in current Region 6 and National Helicopter Contracts. (Ref: Northwest Aviation Management Plan).
Other Aviation Projects: Other occasional aviation uses include Regional Aerial Photo, Search and Rescue, and Media flights.
1. Government Owned, Leased and Operated Aircraft: Government owned USFS aircraft within the Pacific Northwest Region are based in Redmond or Wenatchee and include two C-23 Sherpas used for Smokejumper missions, a Beechcraft King Air, and Cessna 206. These aircraft are operated and managed by the Regional Aviation Group. Consult the Northwest Mobilization Guide for the requirements for ordering these resources.
2. Call When Needed (CWN) Aircraft: Call-When-Needed contractors are a major supplier of aircraft services on the WIF/EUD. Light single and twin-engine fixed-wing aircraft are available through several vendors via the Region 6 CWN Light Fixed Wing Services contract administered by the Region 6 Aviation Contracting Officer or through the DOI Light Fixed wing air Tactical contract and the DOI Aircraft Rental agreement (ARA). Services for light (Type III) helicopters are procured through the Region 6 Light Helicopter Contract or via the DOI-AMD On-call small helicopter contract. The Contracting Officer is located in Redmond, Oregon as a member of the Regional Aviation Group, and the Contracting Officers Representative will be designated by the Region 6 Aviation Contracting Officer. BLM utilizes DOI-AMD Contracting Officers based in Boise.
3 End Product Contracts: An end-product contract (FSM 5710.5/353 DM 1.2A.3) is intended to efficiently and effectively accomplish certain projects with no internal operational controls from agency personnel.
Participation by agency employees in end-product contracts is limited to quality assurance of the end product goals only.
Forest Service Grants of Exemption (FSM 5710.5 and 5714) from the Department of Transportation, Federal Aviation Administration (FAA) regulations, do not apply to end-product contracts. The contractor is required to comply with all State and Federal regulations for the type of work being performed. If departures from the applicable regulations are necessary, the contractor is responsible for obtaining them.
The decision to use an end-product contract removes the Agency from having operational control, thereby placing accountability for any aircraft accident with the operator/contractor. Policy information and guidance regarding the use of aircraft under an end product contract vs. a flight services contract can be found in FSM 5710.5, 5711.2-exhibit 1, DOI-OPM-35, and the BLM National Aviation Plan.
End-Product Exhibit
* This may include incidental use of aircraft for various missions not identified in the exhibit. When evaluating such missions, local or regional aviation managers can assist in making decisions on type of procurement to use.
4. Aircraft Ordering, Scheduling, Dispatching and Tracking
a. Administrative Flights
Ordering and Scheduling: Passengers will contact EICC for assistance with the completion of cost comparisons and authorization documentation. EICC will contact vendors and order/schedule flights as required. Authorization and documentation of administrative flights will be in accordance with the Administrative Aircraft Use Plan in the Northwest Aviation Management Plan. The users will provide the ordering office; EICC, with the following data about the flight:
The total number of passengers by name, grade level, weight, and cargo weights.
Requested flight date and times.
Points of departure and destination.
Whether flight is one way or round trip and expected return time.
Accounting charge numbers.
Flight orders should be placed at the earliest possible time to allow for ordering and coordination of flights. EICC will provide the ordering personnel with flight confirmation as soon as arrangements have been made.
Dispatching and Tracking: Administrative Flight schedules will be forwarded to NWCC for inclusion in the regional flight schedule.
The pilot or Flight Manager will contact EICC if departure times will be + or - 30 minutes from those scheduled. Unless flight following is scheduled with EICC in advance, the pilot will file a FAA flight plan as well as notify EICC upon reaching the destination. See National Mobilization Guide 24.3
b. Fire Related, Project and Emergency Flights
Ordering and Scheduling: All aircraft involved in fire suppression will be ordered/dispatched through EICC in accordance with administrative procedures established in Chapter 20 of the Northwest Area Mobilization Guide.
EICC will alert aircrews of an impending dispatch as soon as possible with the information available at that time. Upon receipt of all applicable information an order form will be sent/given to the aircrew, and the aircraft dispatched to the incident. EICC will require frequencies, contacts, and verify navigation coordinates and legal descriptions.
Ensure effective aerial supervision and timely mission accomplishment by qualified individuals for all aircraft flying over an incident. This table summarizes interagency aviation supervision requirements and guidelines for when aerial supervision is needed on an incident.
Reference Information:
Interagency Aerial Supervision Guide and (NFES 2544)
Requires determination by ATGS or LEAD that visibility and safety factors are suitable and dispatch has been notified of the determination.
USFS FSM 5716.32
The Aerial Supervision Guide references ordering an ATGS for these missions.
FSM 5716.32 classifies these missions as complex. An ATCO and/or HLCO should be ordered as appropriate in addition to the ATGS.
Definitions of Key Words Used in the aerial supervision requirement chart.
Required Aerial supervisory resource(s) that shall be over the incident when specified air tactical operations are being conducted.
Ordered Aerial supervisory resource(s) that shall be ordered by the controlling entity. (Air tactical operations may continue while the aerial supervision resources are en route to incident. Operations can be continued if the resource is not available).
Over The air tactical resource is flying above or is in a holding pattern adjacent to the incident.
Assigned Tactical resources allocated to an incident. The resource may be flying en route to and from, or on hold at a ground site.
Helicopters:
All helicopters used on the WIF/EUD will be ordered and dispatched by the EICC. Policy requires a helicopter manager be assigned to each flight. When a scheduling conflict occurs between administrative use and emergency use, the emergency shall take precedence.
Helicopter Landing Areas will be planned according to IHOG chapter 8. Helibases will be approved by the Unit Aviation Officer or a qualified Helicopter Manager and the pilot prior to use. They will have the following equipment; wind indicator, fire extinguisher, safety signs, adequate communications, and dust abatement as necessary (see IHOG chapter 8-2).
Tracking of Aircraft: EICC will be responsible for tracking (flight following) all initial attack suppression aircraft. Tracking of aircraft on project fires will be a joint venture between EICC, the Air Tactical Group Supervisor and the Air Operations Branch Director assigned to that fire.
Aircraft operating on end product contracts may not be tracked through EICC. However; dispatch will be kept aware of these operations to avoid airspace conflicts, and provide this information to other aircraft operating in those areas of the Forest.
See National Interagency Mobilization Guide, 24.3 for Automated Flight Following (AFF) procedures.
Summary of Requirements and Approval for Passenger Air Transport
The following exhibit outlines consolidated manual and handbook direction for personnel air transport:
(1) Federal personnel deemed essential to performance of the mission or administrative flight.
(2) For purposes of this exhibit, volunteers are considered agency employees.
(3) For SES personnel, use GSA Form 3641. For others use Form FS-5700-12 (Day Use Authorization).
(4) If landing at a helispot or uncontrolled landing area, personal protective equipment is required.
(5) IHOG Chapters 9 & 10; FSM 5711.2; FSM 5716.31; FSM 5716.41; 41 CFR 101-37.4 and FAA Advisory
Circular (AC) 00-1.1. Definitions for material in the above exhibit can be found in FSM 5705, 5710.5 and BLM 9400 Manual.
Communication: Aircraft ordered for WIF/EUD through EICC, will normally be able to communicate on the Willamette’s/EUD’s primary frequencies, and/or the National Flight Following Frequency. Mission aircraft will flight follow (15 minute check-in or AFF) with EICC as long as they are airborne. They will monitor the published Common Traffic Advisory Frequency (CTAF) for the area of operation as well as Air Guard. They may be assigned an alternate frequency to flight follow for a specific project, then return to the Willamette National Forest primary frequency or the National Flight Following frequency for the ferry flight home (see IHOG Chapter 4). Point to point aircraft typically does not have FM radios. It is the Flight Manager’s responsibility to inform EICC prior to departure and as soon as possible after landing.
RADIO FREQUENCIES
In the event communications are lost, do not continue the mission. Return to departure base if within 15 minutes, otherwise land at the nearest approved landing area for your type aircraft and check-in with EICC by telephone.
6. Financial Management and Reporting
a. Financial Management: The COR or the Center Manager will review submit flight invoices. (See Aviation Business System (ABS) @ www.fs.fed.us/business/abs). EICC and/or Flight Manager will be responsible for logging start and stop times for each flight for verification of flight invoices on detection and local recon flights. The COR, UAO, and aircraft/pilot inspector are responsible for informing all contract and rental agreement pilots of payment procedures. Payments will be made upon receipt of the invoices. Contracts will follow the payment procedures specified in the Prompt Payment Act.
All aircraft contracts will be cleared through Agency Contracting and the Contracting Officer will negotiate all aircraft rental rates. Aircraft specifications, rates, inspections, etc. will be handled by the Contracting Officer, Unit Aviation Officer, and Aircraft Inspector. End Product Contracts will be handled as specified in the Northwest Aviation Management Plan per BLM and USFS policy.
b. Reporting: Flight and use data from ABS entries may be extracted if statistical summaries if flight use is needed.
Consult FSM 5717.22/BLM 9400 for information regarding flight hours and costs reporting of job contracts.
7. Search and Rescue
In emergency situations, such as search and rescue or medical evacuation, Agency employees may need to ride in unapproved public agency, military, commercial, or private aircraft. The employee's District Ranger, Center Manager, Forest Supervisor, or other line officer may authorize each flight, and document it on Form FS-5700-14, Aviation Safety Communiqué (SAFECOM) Report. As soon as possible inform EICC and the UAO. (See FSH 5709.16, sec. 33.24b, FSM 1599, and the Willamette National Forest Mobilization Guide, for additional search and rescue direction.)
No person will engage in aviation operations that do not meet the safety requirements set forth in:
Forest Service Manual 5700, Aviation Management
Forest Service Handbook 6709.11, Health and Safety Code
Forest Service Handbook 5709.16, In-Service Flight Operations Handbook
Pacific Northwest Aviation Accident Prevention Plan
Interagency Helicopter Operations Guide
Interagency Aerial Ignition Guide
Interagency Airspace Coordination Guide
Interagency Aviation Transportation of Hazardous Materials Guide
Pertinent Federal Aviation Regulations
State and local laws
BLM 9400 Manual
BLM National Aviation Plan
DOI 350-354 DM
Safety instructions for personnel should include items requiring special care in and around aircraft, both on the ground and in the air. Agency personnel will be trained and used to manage passengers and other personnel around aircraft.
When planning aircraft needs, project planners should select aircraft that will perform the duties with the greatest degree of safety. The Regional Aviation Group should be contacted in the earliest stages of planning to provide additional assistance in areas of aircraft capabilities, landing field requirements, writing technical specifications, etc.
All rented, leased, or contracted pilots and aircraft able to perform special missions for the Forest Service and the BLM are certified by a qualified Regional Aircraft/Pilot Inspector. Certifications for pilots or aircraft are documented on the following forms:
1. FS-5700-20 or FS-5700-21 (pilots, "pilot card")
2. FS-5700-4 or FS-5700-4a (aircraft, "aircraft data card")
3. AMD-30A or AMD-30B (pilots, "pilot card")
4. AMD-36A or AMD-36B (aircraft, "aircraft data card")
Aviation Management Directorate (AMD) inspectors and documentation are adequate approval for FS/BLM aircraft. Other federal or state agency approvals are not acceptable without a letter from the Regional Aviation Officer, carried with the aircraft, outlining such approval and stating any restrictions.
Exceptions to the above inspection and approval process or “carding” process are the approved point-to-point pilots and aircraft. The pilot may have a card stating that his or her approval is for point-to-point missions only, or the pilot and aircraft may be covered together under a letter of approval.
All aircraft will be operated in a safe and prudent manner in accordance with the applicable Federal Aviation Regulations and Agency policies and guidelines. The Pilot in Command (PIC) is responsible for the safety of the aircraft, passengers, and cargo and ensuring that an aircraft is properly loaded within weight and center of gravity limits. The PIC or any involved employee can cancel, postpone, or change a flight when existing or impending conditions would make aviation operations hazardous. The Forest Service/BLM reserves the right to suspend operation of any pilot or aircraft which, in the opinion of the agency employee in charge, operates in an unsafe manner, violates standard operating procedures, violates contract provisions, or otherwise performs in an unsatisfactory manner.
Personal Protective Equipment (PPE):
Personnel participating in low-level flights (below 500 feet above ground level excluding takeoff and landing) shall wear the personal protective equipment specified in this section at all time during such flights.
1. All Aircraft. Shirt and trousers or one-piece flying suit made of fire-resistant cloth that overlaps gloves and footgear when the individual is in the sitting position is required. Gloves must be leather or other fire-resistant material. Single-engine air tanker pilots are required to wear leather boots.
2. Helicopters. Nomex clothing (fire resistant shirt, pants or one-piece flight suit) that overlaps gloves and foot gear when the individual is in the sitting position are required. Gloves must be leather or other fire-resistant material. Refer to the Interagency Helicopter Operations Guide (IHOG), chapter 9 for more detail on clothing and flight helmet requirements. National approval by the Director, Fire and Aviation Management Staff, Washington Office is required for waivers (IHOG chapter 9, page 9-7(F)) associated with increased-risk missions.
3. Single-Engine Air tankers. In addition to the requirements of the preceding paragraph, helmets meeting the specifications of chapter 7, section II, Interagency Single-Engine Air tanker Operations Guide (ISOG), must be worn.
4. ATGS and Lead Plane Operations: Leather shoes or boots and full length cotton/nomex trousers or flight suit are required. Ref. aerial Supervision Guide, DOI Aviation Life Support Equipment (ALSE) handbook, Interagency Standards for Fire and Fire Aviation Operations (Red Book), Chapter 16, Aviation Operations.
In addition to FSM 5700/BLM 9400 Manual, the Willamette National Forest, strongly recommend occupants to wear Personal Protective Equipment (PPE) for all fixed-wing detection, and reconnaissance flights, which operate above 500 feet AGL. Contractors will comply with the protective clothing requirements of their contract.
Risk Analysis; common to all flights. Risk management is a decision-making process. Everyone involved in an operation should have a part in risk management. Those at the ground level are ideally situated to identify hazards and determine their risk. They can also recommend to the decision maker what controls are appropriate. The process of managing risks makes operations safer without compromising the mission. The following rules and steps are provided to assist the project planner in the process of risk management.
The Interagency Safety Management System (SMS) “Aviation Risk Management Workbook” has well-documented risk assessments posted on the internet that have already been performed for most aviation missions conducted by USFS and BLM. Users and Managers should consult this resource first.
Another useful tool or strategy for analyzing risk is by using the following process:
Five Steps to Risk Management
Identify hazards. Identify specific hazards associated with all specified and implied tasks.
Assess risks. Determine the likelihood and the severity of the hazards identified in Step 1.
Make decisions and develop controls. Make risk acceptance decisions by balancing risk benefits against risk assessments and eliminate unnecessary risk. Risk strategies are: 1) accept, 2) reduce, 3) avoid, 4) spread and 5) transfer. Reduce the magnitude of mission-essential risks through the application of controls.
Typical controls of risk are:
Engineer hazards out of the system. Use/design human operated machines that reduce, avoid, or spread the risk so that it becomes acceptable.
Guard/Control. These controls affect the environment around the person(s) at risk. They limit exposure, which in effect spreads and reduces risk to an acceptable level.
Distance. Risk can be spread or reduced by inserting a linear or time dimension to the process.
Time. Time is a critical dimension in risk control and is an outgrowth of the operations tempo. We have plenty of evidence that point to the effect of poor time management and mishaps. A direct relationship can be made between rushing and high risk, particularly in logistics-caused mishaps. Taking enough time to do the job right, the first time, is one of the most effective risk controls we have.
Restrictions and Limitations. These measures are often put in place as a reaction to a mishap. Therefore, they don't conform to process improvement goals, but rather as mishap prevention measures.
Training and Education. These risk controls will always have a viable application. Training and education allows us to accept risk with the understanding that personnel can learn to manage risk.
Implement controls. Integrate specific controls into plans and mission performance. Knowledge of controls down to the individual is essential.
Supervise and evaluate. Enforce controls and standards. Evaluate mission progress and take appropriate corrective actions. The Risk Management process must be continuous. It does not quit until the process stops or the mission is no longer being conducted. To complete the cycle, review the process to determine if hazards were properly identified, risks assessed, and if the controls worked.
Accident/Incident Reporting: All aircraft Incidents, Incidents with Potential, and Accidents will be reported immediately to EICC, or in the case of an incident to the AOBD or IC, as appropriate. In the case of Accidents or Incidents with Potential, the UAO or acting will be notified immediately by EICC, regardless of the time of day. The Agency employee most directly involved with the incident will be responsible to file a SAFECOM with the Regional Aviation Safety and Training Manager and the UAO as soon as possible. Anyone involved with FS/BLM aviation operations may file a report at any time (see FSM 5700, 5720, IHOG Appendix C and the PNW Aviation Accident Prevention Plan).
Overdue or Missing Aircraft: For any overdue or missing aircraft, refer immediately to the Pacific Northwest Aircraft Crash, Search and Rescue Guide.
Aviation program activities will be monitored by the UAO for safety, cost effectiveness, suitability (as a means of mission accomplishment), and for planning and training for future projects. Follow-up on mission effectiveness will be conducted by the UAO with assistance from the appropriate program manager. An annual program review with Forest Supervisor/District Manager involvement is strongly encouraged. Changes in the program will be made as necessary. These changes will be forwarded to the District Aviation Officers and if necessary, training will be conducted related to these changes. The manual and handbooks will be reviewed a minimum of annually and this plan will be amended to reflect supplements or revisions to the manual or handbooks referenced in this document.
II. AVIATION OPERATIONS
1. A flight hazard map for WIF/EUD will be compiled by the Region with input from the Unit Aviation Officer, EICC, and the District Aviation Officers. It will be updated annually or as needed. A flight hazard map will be maintained at each air operations facility for review by flight crews.
Include the following on the hazard maps:
Power lines.
Telephone lines (around landing areas).
Aerial logging and/or high line cable operations.
High bridges.
Lookout towers.
Microwave towers.
Military low level training routes (MTR).
Restricted and/or prohibited areas.
Military Operations Areas (MOA's).
(Note: On special projects, a larger scale hazard map of the project area should be used showing: hazards, alternate landing areas, private land boundaries, etc.)
2. Locate on Interagency dispatch maps all electronic aviation navigational stations (VOR/VORTAC).
3. Additional maps should be developed that show:
detection routes; normal, alternate and high fire risk.
approach and departure routes and traffic patterns for operated landing fields and helibases.
B. AIRSPACE COORDINATION
Airspace coordination and de-confliction is a shared responsibility among ALL aviation users. The primary focus in airspace coordination is mid-air collision avoidance. Positions such as the Unit Aviation Officer, Dispatchers and on-scene Aviation personnel are all responsible for airspace coordination. Personnel involved in aviation operations shall follow all processes and procedures outlined in the Interagency Airspace Coordination Guide (IACG). EICC will provide the contact with the military, airspace coordinator and the project manager.
The possibility of conflicts with military activities should be considered on all Agency aviation projects. Requests for temporary flight restrictions for airspace will be processed through EICC for those incidents projected to continue beyond the initial attack phase or where other aircraft will pose a hazard to incident aircraft. Coordination, especially in congested areas or in Special Use Airspace (MTRs, MOAs) is critical to safe flight.
The following should be addressed pre-season:
Airspace hazard identified and posted on the hazard map.
Dispatch personnel trained in airspace coordination.
Critical contact phone lists are updated annually.
PERSONNEL DIRECTORY
Unit and Regional Aviation Organization
D. REFERENCES
Chapter 14, Code of Federal Regulations (CFR), Federal Aviation Regulations (FAR)
14 CFR Part 61 Certification
14 CFR Part 91 General operating and flight rules
14 CFR Part 121 Certification and operations
14 CFR Part 133 Rotorcraft external load operations
14 CFR Part 135 Air taxi operators and commercial operators
14 CFR Part 137 Aerial Application
Federal Aviation Regulations/Aeronautical Information Manual (FAR/AIM)
Forest Service Manual (FSM) 5700
Forest Service Manual (FSM) 6500, Form FS-6500-122
BLM 9400 Manual
BLM National Aviation Plan (updated annually)
DOI 350-354 DM
Forest Service National Aviation Management Plan
Northwest Aviation Management Plan (updated annually)
Northwest Aviation Accident Prevention Plan
Forest Service Handbook (FSH) 5709.16, In-Service Flight Operations Handbook
Forest Service Handbook (FSH) 6709.11, Health and Safety Code
Forest Service Handbook (FSH) 5109.17, Fire and Aviation Management Qualifications Handbook
Chapter 49, Code of Federal Regulations, Hazardous Material Regulations and DOT 9198 Letter of Exemption
Interagency Helicopter Operations Guide (IHOG), 2009
Interagency Aerial Supervision Guide, updated annually
Interagency Single Engine Air Tanker Operations Guide, updated annually
Interagency Aviation User Pocket Guide, 2008
Interagency Aviation Technical Assistance Directory
Basic Aviation Safety
Wildland Fire Qualifications Subsystem Guide, 310-1
Aircraft Crash, Search, and Rescue Guide
Willamette National Forest Mobilization Guide
Willamette National Forest Specific Staffing and Action Guide
Northwest Area Interagency Mobilization Guide
National Interagency Mobilization Guide
Pacific Northwest Aircraft Radio Communications Plan and Frequency Users Guide
Interagency Aerial Ignition Guide, January 2004
Interagency Airspace Coordination Guide July 2003
Call When Needed (CWN) National Helicopter Contract
Call When Needed (CWN) Regional Light Fixed-Wing Contract
National Airtanker Contract
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