Transcript MyFireCommunity.net

The Changing Composition of
Firefighting Resources:
Agency/Contractor Relations in
Wildland Firefighting
November 2008
Prepared as an educational resource for agency
and professional wildland fire contractors by the
Wildland Fire Lessons Learned Center
Key Wildland Fire Resources
“Contracting is very important to federal wildland fire
management. Contracts for activities in prevention, initial
attack, large fire suppression, fuel treatment, and other
fire management programs account for a significant
portion of the expenditures. Without the use of
contractors and other partners, the agencies would not
be able to meet public expectations for protection,
treatment, and restoration.”
• Source: 2005 Quadrennial Fire & Fuels Review, final
report
The Contractor Community
• Professional wildland fire contractors:
– Represent 1/3rd of the national wildland fire
community.
– Form hundreds of contracting companies in US
– Employ over 10,000 employees 25% who are
previous agency employees
– Form at least four different trade associations.
Benefits of Contracting
•
•
•
•
•
•
•
Can be more economical
More widely available
Diversity of resources
Additional standards for training & employment
No long-term costs
No overhead (i.e.. benefits, insurance, etc.)
No state or federal workers’ compensation
claims
Benefits: Availability
Number of c ontrac t res ourc es
dis patc hed in 2008
700
600
500
400
300
200
its
ow
er
rs /
Sh
te r
e
Ca
am
Te
S tr
ik e
Un
rs
le a
ws
,
c re
al
tio
n
Na
de
ws
2I A
2C
pe
Ty
rF
be
c re
re w
s
rs
a lle
s
se
T im
Bu
e rs
nd
Te
Wa
te r
En
g in
0
es
100
US F S R egions
9
8
6
5
4
3
2
1
Sources: National Wildfire Suppression Association report, August 2008;
Neil Hitchcock, National Interagency Fire Center
Benefits: Availability (cont.)
• The PNW has access to considerable contract
resources.
• 98% of contract crews are based in the PNW.
Contract Crew Use by Agency,
2007
NPS, .5%
State, 1.6%
BLM, 10%
BIA, 11%
ODF, 5.4%
FWS, 1.0%
USFS, 71%
Source: 2007 Extension Interagency Firefighting Crew Agreement (Bob Young,
Oregon Dept. of Forestry) via NWSA
Benefits: Resource Diversity
• Contract personnel provide a wide variety of resources
including:
– Human resources
• Fire crews, Type 2
• Resource & technical specialists
• Timber Faller modules
– Suppression equipment
• Engines, Tenders, Dozers, Excavators, Skidgines, heavy
equipment, trailers, etc.
– Aviation equipment & services
• Air tankers, fixed-winged aircraft for use as lead planes,
reconnaissance, smoke jumper delivery, helicopters, retardant,
mechanics, ground support, communication trailers, etc.
– Incident support
• Catering services, clerical trailers, shower facilities, hand-washing
stations, toilets
Benefits: Higher Standards
• Contract personnel are often subject to
additional training standards
– MOUs (Memorandums of Understanding) used in
Regions 1 and 6 to set standards for training
professional fire contract resources.
– Crew contract experience requirements
Source: NWSA
Benefits: Higher Standards
• In addition to meeting the wildland fire
standards, contractors must comply with:
– Fair Labor Standards Act
– McNamara-O’Hara Service Contract Act
– Migrant & Seasonal Agricultural Worker Protection
Act
– Field sanitation of Occupational Safety & Health Act
continued…..
Source: Presentation by the US Dept. of Labor, “Wage & Hour Laws Applicable to Reforestation Work”
Benefits: Higher Standards
Continued…
– U.S. Dept. of Transportation (FMCSA – Federal Motor
Carrier Safety Administration) Regulations
– All other state and local regulations (i.e.. OR Farm
Labor Contractors License required for all hand
crews)
Source: NWSA
Benefits: Other
• By contracting services and equipment, agencies avoid
the long-term costs of procuring, maintaining equipment
and/or hiring and training personnel.
• Agencies have no overhead associated with contracted
personnel such as benefits and insurance.
• As contracted personnel and not agency employees,
responsibility for workers’ compensation or other work
related liability claims remains with the professional
wildland fire contractor.
Contract Personnel
Utilization
• The number of contracts for equipment and personnel
has increased.
– USFS has over 1,000 contracted resources in all facets of
wildland fire activities.
• Contract resources are a vital part of the National Fire
Plan.
• Emergency Equipment Rental Agreements (EERAs)
have matured into more traditional contracts.
• Use of contract personnel has doubled in the last 20
years in the NRCG.
Contract Personnel
Utilization (cont.)
CONTRACT CREW NUMBERS
Number of Contract
Crews based in Pacific
Northwest grew from
150 in 1993 to almost
300 in 2004-5.
NUMBER OF CREWS
350
300
250
200
150
100
50
YEARS
Source: Bob Young, Oregon Dept. of Forestry, via NWSA
07
06
20
20
05
20
04
20
03
02
20
20
01
20
00
20
99
19
98
97
19
19
96
19
95
19
94
19
19
93
0
Contract Personnel
Utilization (cont.)
• In Region 1, contract engines make up 60% of all
agency (USFS) resources*
• Region 6 USFS Blue Ribbon Committee estimates
additional equipment and personnel needs for the next
decade:
– 400 engines
– 250 tenders
– 200 crews
*Source: John Bennett, private contractor in Reg. 1.
Contracting Issues
• Despite 60+ years of contractor involvement and
numerous benefits, contract personnel can be viewed in
a different light relative to agency resources.
• Perceptions vary concerning:
– Capabilities (i.e. some think contractors are not as qualified to be on
fires as agency personnel; many think they are all of transient nature
and only in it for $)
– Training (i.e. some think contractors are not “trained professionals” as
agency personnel are; unaware of high standards of training they are
held to)
– Oversight
• These perceptions can strain agency/contractor relations
– Present safety hazards when on incidents
– Lack of community
– Lack of cohesiveness on fires presents threats
Case Study:
Lessons Learned in PNW
• Many regions have been working to improve
contractor/agency relations and perceptions. A contract
liaison team in Region 6 was interviewed for their lessons
learned.
– In forging positive relations with contractors, R6 USFS Contract
Working Team (CWT) has focused on:
•
•
•
•
•
Communications
Staffing
Cost Sharing
Contract Management
Technology
• Many of their practices are being replicated in
other regions throughout the country.
Case Study:
Communications in PNW
• PNW agencies and contract personnel work to:
– Hold annual meetings that share current and future
policies
– Hold biannual meetings with associations
– Hold annual meetings with agency administrators to gather
feedback on the contracting process.
– Distribute a mutual respect letter to the PNW coordinating
group and associations.
Case Study:
Staffing in PNW
• PNW agencies and contract personnel established
dedicated contractor representatives (CRNWs) who:
– Are trained by the CWT.
– Represent specific contract resource, not all contracted
resources.
– Serve as a contractor’s representative to the IMT.
– Monitor agreements while on an incident.
– Conduct annual inspections of contractors.
– Assigned to crews in fire camps to act as liaison between
agencies and contract personnel.
Case Study:
Cost Sharing in PNW
• The USFS shares the cost of inspections and record
reviews for engine and tender vendors’ employees to:
– Increase reliability
– Encourage increased qualifications by putting less of cost
burden on contract personnel
– Increase caliber of equipment and firefighters
• Vendors pay the MOU providers for records inspections.
Case Study:
Contract Management in PNW
• PNW used the “Choosing by Advantage” approach to
Best Value contracts which was developed by a multiregion committee of USFS fire and acquisitions
personnel. It involves scoring resources differentially
based on features and compensated accordingly.
• Performance evaluations started in 2006 as part of Best
Value system. Completed performance evaluations
increased from 50 to over 500.
Case Study:
Technology in PNW
• The PNW developed EATIS (Equipment and Training
Inventory System) which provided the following:
• A web-based application for managing vendors and their
equipment
• Tracked inspections and employee certification records as well
as equipment specs
• Kept prices down due to competitiveness; vendors could see
what others were charging
• Kept the dispatch priority list public for engine and tender crews,
so they knew their likelihood to be called up. Cut down on no. of
questions received from contractors. (Also fostered competition
and self-policing.)
• Used as a model to develop new national system being rolled
out called VIPR.
Case Study:
Contract Personnel in PNW
Results:
• Often see cost savings when using contract personnel
• Perceptions of contract personnel within agency has changed for
better; i.e.. more respect both ways
• Contract personnel viewed as “partners” rather than vendors
• Both sides see benefits to their relationship (i.e. agency gets
qualified yet cost-efficient contractors to supplement their resources
and contract personnel get fair compensation and regular work)
• Have built healthy community of fire professionals consisting of both
agency and contract personnel which fosters safer incidents
• Better communication means better informed contract personnel
and less fielding of questions within agency
Source: Willie N. Begay, Jr. , Fire Operations Specialist for USFS, Reg. 6, and LuAnn Grover-Pugh, Contract
Operations Asst. for USFS, Reg. 6
Future Developments
• The future has many challenges. Some will be
addressed with technology. Others will require
the concerted efforts of agencies, contract
personnel and associations to overcome.
Future Developments
• Northern Rockies State and Federal Agencies saved
over $1 million after changing to Best Value system
N. Rockies Coord. Group
Expenditures
Millions
$20
$15
$10
18.56
18.50
$5
7.40
$0
Engines
6.30
3.60
W ater T enders
3.74
Heavy Equip
Equipment Type
Standard Rate
New Best Value
Source: Tim Murphy, NRCG Contractor Liaison for the Northern Rockies Coordinating Group
Future: Technology
• Work continues to integrate new technology and
standardize Best Value Agreements
– Virtual Incident Procurement (VIPR) system
• National Forest Service Acquisition System
• Goal: Manage and automate pre-season incident agreements
following web-based structure developed by EATIS
• Standardizes Best Value and promotes competitive pricing
• Incorporates solicitation, evaluation, and award of agreements all
the way through e-signature process
• Manages modification of agreements as needed
• Big iron (dozers, excavators, transports, etc.) will be
beta-tested using VIPR in Reg. 8 beginning in 2009
and through 2011 when rolled out nationally
Future: VIPR
VIPR will be used in 2009 for new solicitations, existing agreements and non-competitive solicitations
which could include:
09 New Solicitations
Existing Agreements
09 Non-competitive Agreements
- Potable water truck, Gray water
truck, Handwashing station (trailer
mounted)
- Handwashing station (portable),
Portable toilets
- Mobile laundry
- Waterhandling equipment (engines,
tenders, etc.)
- Ambulance
- Single Faller, Faller module
- Chipper
- Clerical support unit
- Pack string
- GIS Unit
- Tents
- Vehicles with driver
- Motor coach
- Refrigerator trailer
- Shuttle bus
- Mechanics with service truck
-Chainsaw/small equipment repair
- Mobile sleeper unit
- Module office units
For more information, visit the USFS Incident Procurement page, which will be the portal for delivering all
the information about the new IBPA process and VIPR: http://www.fs.fed.us/business/incident/
Sources: Larry Bowser (Branch Chief) and Cheryl Emch, WO Acquisition Management Fire Equipment, Services & Supplies
Acquisition Analysis (FESSAA) Team, USFS; LuAnn Grover, Contract Operations Asst., USFS, Reg. 6
Future: Agency Administrators
• Agency administrators and contract personnel must:
•
•
•
•
Define their respective roles
Determine the appropriate mix of agency/contract resources
Create guidelines for how and when to use contract resources
Create and distribute training covering basics of working with
contract personnel
• Develop methods of resolving issues
• Advance professionalism – ex: R. 6 Mutual Respect Letter
Agency personnel need to encourage from top down
• Provide Orientation – How to work with each other, resolve
issues, communicate, chain of command, etc.
Future: Contractors
• Contract personnel and agencies must work to address:
– Rising cost of insurance.
– Lack of reciprocal agreements across state lines for worker’s
compensation.
• Similar to one currently in use between OR and SD stating
contractor’s home state insurance is only one applicable and
required
– Development of national agreements to promote stability within
contractors.
– Expand use of contract personnel into other areas like fuels
treatment
– Ease transition with potential contractor attrition when new
technology-related systems are introduced
– Prevent perceptions on the part of agencies of job loss resulting
from contracting.
– The correct interpretation of Best Value Agreements.
Sources of Support
• Contract personnel can obtain support and assistance
from a number of resources including:
– Procurement Technical Assistance Centers (PTACs) (www.aptacus.org)
• Offices around US to assist contract personnel with government.
contracts
• Services include: Helping contractors navigate web-based
methods, finding solicitations, page-by-page review of solicitations,
assist with paperwork and proper authorizations
• “Contractors in Fire” Blog
– www.contractorsinfire.com
– Created by NWSA
– Clearinghouse of information for those in wildland fire suppression and
emergency response
– Contains news relevant to wildland fire contracting including links to
helpful resources
Sources of Support (cont.)
• National Trade Associations
– Provide services to members including tradeshows, educational
conferences, agency representation, training opportunities and
more.
Here are just a few examples:
• American Helicopter Services and Aerial Firefighting
Association (AHSAFA) (http://www.ahsafa.org/)
• National Wildfire Suppression Association
(http://www.nwsa.us/)
• Western Forest Fire Services Association
(http://www.olwm.com/wffsa/)
• International Association of Wildland Fire
(http://www.iawfonline.org)
• Helicopter Association International (HAI)
(http://www.rotor.com)
Contract/Agency Outlook
• Use of contract personnel will continue to grow as
agency resources and budgets are tightened and fire
seasons expand
• Safety on incidents will continue to be threatened unless
resources are seen as one cohesive community with
same goals
• Need to continue education and awareness to promote
this and eliminate lines of diversity
Sources
• The Wildland Fire Lessons Learned Center would like to thank the following
people for their contributions to this report.
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Willie N. Begay, Jr. , Fire Operations Specialist for USFS, Reg. 6
John Bennett, Private contractor in Reg. 1
Doug Bolender, Kalispell PTAC Office
Cheryl Emch, WO Acquisition Management Fire Equipment, Services & Supplies Acquisition
Analysis (FESSAA) Team, USFS
Larry Bowser, Branch Chief, Acquisitions Mgmt. Systems for USFS
Ft. Collins, CO
Ben Drummond, filmmaker working on a documentary called “Fire in America”
LuAnn Grover-Pugh, Contract Operations Asst. For USFS, Reg. 6
Neil Hitchock, Deputy to the Asst. Director for Fire Operations, Forest Service, NIFC
Joe King, Private contractor in Reg. 1, President, N. Rockies Wildfire Contractors Assoc.
Debbie Miley, Exec. Dir. For National Wildfire Suppression Assoc.
Tim Murphy, Reg. 1 Contractor Liaison for USFS
Dan Olsen, Reg. 8 Acting Fire Director for USFS
Jim Wills, private contractor and Chair of Reg. 5 Chapter of NWSA
• Additional Source
–
–
Interagency Strategic Plan for Fire Suppression Contracting in PNW, prepared by Blue
Ribbon Task Group for Fire Suppression Contracting
www.fs.fed.us/business/incident
Wildland Fire LLC
For more information:
•
•
Contact the Wildland Fire Lessons Learned Center staff:
– Paula Nasiatka, Center Manager ([email protected])
– David Christenson, Asst. Center Manager ([email protected])
– Brenna Macdowell, Support Staff ([email protected])
Or visit one of our websites:
– www.wildfirelessons.net – Main LLC site
– www.myfirecommunity.net – Community Center for wildland fire
professionals
– www.imtcenter.net – Team sites, hosted by the LLC
– www.myfirevideos.net – our new video server site