Number range CHAPTER

**[Followers to Leaders --]{.smallcaps}**

**[Developing Leaders in Wildland Fire]{.smallcaps}**

Communication Plan

September 2002

**[Table of Contents]{.smallcaps}**

[Background]{.smallcaps}

[Goals of the Communication Plan]{.smallcaps}

[Audience]{.smallcaps}

[Strengths and Challenges]{.smallcaps}

[Key Messages]{.smallcaps}

[Frequently Asked Questions]{.smallcaps}

[Potential Issues]{.smallcaps}

[Quick Reference List]{.smallcaps}

[Formal Curriculum]{.smallcaps}

[Leadership Development Resource]{.smallcaps}

[Leadership Committee Contacts]{.smallcaps}

[Web Sites and Other Resources]{.smallcaps}

[Appendix]{.smallcaps}

A.  [Schedule of Activities]{.smallcaps}

B.  [Outreach Plan]{.smallcaps}

**[Followers to Leaders -- Developing Leaders in Wildland
Fire]{.smallcaps}**

**[Background]{.smallcaps}**

Fatalities and injuries on wildland fires have common themes, but one,
in particular, stands out: no fatality or injury can be traced to one
single mistake. Nearly every accident is caused by a series of mistakes
that, when compounded, lead to someone or several people getting hurt.

Wildland and safety managers have consistently addressed the mistakes
commonly cited in accident and fatality reports. They have improved
wildland firefighter training, equipment and techniques. They have
talked safety in briefings and training, both on and off the fireline,
and their messages are being carried among firefighters. We know this
because it's rare that one firefighter passes another on the front lines
without a passing "stay safe" or "be safe."

Yet, firefighters still die or are seriously injured every year on
wildland fires.

Recently, training specialists and wildland fire managers have begun
focusing on another factor commonly cited in accident and fatality
reports: leadership. Though training addressed various aspects of
leadership, a coordinated approach to leadership development within the
firefighter ranks has been slow in coming.

To address this issue a leadership task group was chartered in
September, 2000, under the National Wildfire Coordinating Group (NWCG)
to analyze the NWCG training curriculum and make recommendations on
leadership training issues. The Leadership Task Group submitted its
final report to the NWCG's Training Working Team in February 2001.

In its report the Leadership Task Group recognized that addressing
leadership issues within the large interagency wildland fire
organization would require more than training alone. The group felt
strongly that the wildland fire community needs to *develop* leaders,
beginning at the basic firefighter level and continuing throughout the
firefighter's career.

During its study, the task group examined several organizations, such as
the Marine Corps, that attempt to address leadership issues in their
workforce for a variety of reasons. Benchmarking a variety of
organizations helped the group understand the different perspectives and
develop ideas for dealing with leadership challenges within the wildland
fire community. As a result, the Leadership Task Group recommended 14
actions in its report to enhance the development of leaders in wildland
fire. These recommendations include:

-   establishing a leadership development curriculum that includes
    courses from the least (follower) to the most complex
    (organizational leader) levels;

-   developing new courses on leadership or modifying existing ones, and
    eliminating courses that no longer fit with the development program;

-   incorporating existing leadership courses into the interagency
    Publication Management System (PMS);

-   establishing methods for evaluating the effectiveness of leadership
    training;

-   make specific leadership courses required training for certain key
    positions additional training recommended for other positions;

-   develop a self-study component of the leadership curriculum;

-   develop and use leadership skills assessment tools within the
    development program;

-   adopt and communicate to the wildland fire community a set of
    desired leadership principles and values common to all our
    organizations; and

-   establish a standing group (e.g., Steering Committee) that will be
    responsible for overseeing the implementation of the recommendations
    in this report.

As a result of the report, the NWCG established the Leadership Committee
under its Training Working Team to prepare an interagency, national
strategy for developing leaders in wildland fire through an integrated
program of training, development and assessment. The wildland fire
leadership program aims to develop leaders who can make timely decisions
in high stress situations that get the job done without compromising
firefighter safety.

**[Goals of the Communication Plan]{.smallcaps}**

-   Establish and convey the concept of *developing* as opposed to
    *designating* leaders in wildland fire and aviation management and
    operations.

-   Increase the support and involvement of the wildland fire and
    aviation community and it's partners in developing strong and
    effective leaders.

-   Introduce and help the wildland fire community learn, understand and
    assimilate wildland fire leadership core values and principles.

-   Provide a reference for information and sources related to the
    wildland fire and aviation leadership development program.

**[Audience]{.smallcaps}**

The main intent for developing an integrated and progressive leadership
curriculum in wildland fire and aviation is to increase the
effectiveness of firefighters on the fireline, which will result in
increased safety for firefighters, people and property affected by
wildland fire. The audiences for outreach are both internal and
external, and an outreach plan for these entities is included in the
Appendix.

**Internal Audience**

-   Fire fighters and incident personnel

-   Fire and resource managers

-   Training specialists

-   State, tribe and local wildland agency partners

-   National Wildfire Coordinating Group

-   Fire and Aviation Directors

-   Geographic Area and National Coordinators

-   National Fire Plan Leads

**External Audience**

-   Contractors

-   Departments of Agriculture and Interior

-   Congressional Representatives

-   Western Governors' Association

-   National Association of Counties

-   National Fire Protection Association

-   National Association of State Foresters

-   Federal Emergency Management Agency

-   Department of Defense

-   Department of Energy

-   International Association of Fire Chiefs

**[Strengths]{.smallcaps}**

-   The leadership development program is being developed and
    benchmarked based on some of the best practices used by outside
    organizations with a long history and much experience in developing
    leaders. These organizations have invested a lot of time and money
    and expertise in building a leadership program that graduates people
    who are effective decision-makers in high stress and high risk
    situations.

-   Private contractors are helping develop and deliver leadership
    courses. By using contractors, students are receiving high quality
    training provided by experienced, professional trainers, and
    wildland agencies are fulfilling a commitment to Congress to work
    with private companies when possible.

-   The leadership development curriculum provides training and
    development opportunities beginning at the entry, or grass-roots,
    level of firefighting. This training improves awareness of human
    performance issues on the fireline so that individual firefighters
    can integrate more effectively into teams and crews working in
    dynamic, high-risk environments.

-   The leadership development program allows students to put concepts
    delivered in courses into practice. The assessment tools used in the
    program allow students and trainers to determine if training
    objectives have been met.

**[Challenges]{.smallcaps}**

-   Developing strong and effective leaders in wildland fire and
    aviation programs will require an investment. This investment
    involves time, money and management support, and ensures candidates
    are retained and receive the experience they need.

-   Firefighters understand well the physics, tactics and strategies of
    fighting wildland fire. Understanding human behavior is just as
    important. The leadership development program develops leaders who
    understand human behavior and how that behavior can affect actions,
    reactions, and decisions on a wildland fire.

-   Integrating the concept and practice of effective principle- or
    value-based leadership in wildland firefighting will take time and
    persistence. Changing culture requires education to modify beliefs,
    and then, behavior.

**[Key Messages]{.smallcaps}**

-   A new approach to developing leaders in wildland fire and aviation
    means good decisions that will, ultimately, help increase
    firefighter and public safety. Well-developed leaders make and
    communicate effective decisions that reduce misunderstandings and
    strengthen teamwork in high-risk and high-stress situations typical
    of wildland firefighting.

-   Strong and effective leaders must be cultivated, rather than simply
    trained. The wildland fire and aviation leadership development
    program blends personal leadership traits with classroom training,
    assessment, self-development and experience.

-   Creating an environment where leaders are incrementally developed
    will take years. Firefighters will develop as leaders over the
    lifetime of their career, and in turn, will help develop new
    leaders.

-   Leadership traits in individuals can be identified and developed if
    the person is eager to work and learn. The leadership development
    program helps identify individuals who have the potential or desire
    to become effective leaders.

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-   Through the new leadership development program, agencies will invest
    in people earlier in their careers, helping the wildland agencies'
    workforce evolve with well-prepared and effective leaders and
    followers.

-   The leadership development program is an investment -- in time,
    money, *and* management support -- that will help people make
    decisions that result in effective work that, ultimately, increases
    the safety of firefighters and the public from wildland fire.

**[Frequently Asked Questions]{.smallcaps}**

-   **What *is* a leader and what characteristics combine to make an
    effective leader?**

> Based on our own experiences, most of us could probably come up with a
> pretty good definition of an effective leader. For the purposes of the
> leadership development program, the following working definition based
> on wildland fire service is used: A leader is an individual whose
> values and character enable her or him to influence others by
> providing purpose, direction, and motivation, while working to
> accomplish the incident response mission and improve the organization.

-   **Why do we need to build a leadership development curriculum, and
    why this new emphasis on leadership in wildland fire management?**

> Wildland and safety managers have consistently addressed the mistakes
> commonly cited in accident and fatality reports. They have improved
> wildland firefighter training, equipment and techniques, and heavily
> emphasized safety. Yet, firefighters still die or are seriously
> injured every year on wildland fires.
>
> Recently, training specialists and wildland fire managers have begun
> focusing on another factor commonly cited in accident and fatality
> reports: leadership. A leadership task group was chartered in
> September, 2000, under the National Wildfire Coordinating Group (NWCG)
> to analyze the NWCG training curriculum and make recommendations on
> leadership training issues. The Leadership Task Group submitted its
> final report to the NWCG's Training Working Team in February 2001. In
> its report, the Leadership Task Group recognized that addressing
> leadership issues within the large interagency wildland fire
> organization would require more than training alone. The group felt
> strongly that the wildland fire community needs to *develop* leaders,
> beginning at the basic firefighter level and continuing throughout the
> firefighter's career.

-   **What does the leadership development program consist of?**

> The curriculum includes five levels of training from the least
> (follower) to the most complex (organizational leader) levels. A basic
> course in human factors lays the foundation, and firefighters advance
> through courses focusing on the transition from followership to
> leadership, fireline to incident and advanced incident leadership. The
> program includes and incorporates self-development courses,
> assessments, and on-the-ground training.

-   **How long will it take to build and implement all the courses in
    the five levels of training?**

> It will probably take three to five years to integrate all components
> of the leadership development curriculum and make the related changes
> to other interagency documents such as the Wildland and Prescribed
> Fire Qualifications System Guide (310-1).

-   **Why do we need fire leadership training when agencies already
    address leadership through current curricula?**

> Fire leadership training focuses on developing leaders who manage
> large-scale incidents and emergencies and make critical decisions
> under stressful situations and in high risk environments. Standard
> leadership training does not address these specialized situations, and
> is not always available to people at all levels of the fire
> organization, such as temporary or seasonal firefighters. Agency
> leadership courses provide valuable training to natural resource
> professionals in most fields; however, wildland firefighting is one of
> the most dangerous of the natural resource occupations, and requires
> more specialized training. Still, if agencies feel their internal
> training courses already meet the intent of the fire leadership
> courses, the Wildland and Prescribed Fire Qualifications System Guide
> (310-1) allows agencies to determine equivalency.

-   **Do the new Human Factors and Followership to Leadership courses
    mean more required training?**

> No, the Human Factors and Followership to Leadership courses will not
> be additional training. Human Factors will be integrated into an
> existing course, S-130, which is currently under revision, and
> Followership to Leadership will replace an existing course, S-131. For
> positions that do not require S-130 or S-131, these courses will be
> considered supplemental training and are not required.

-   **Will this training be recommended or required in the NWCG's
    Wildland and Prescribed Fire Qualifications System Guide (310-1)
    system?**

> The Leadership Committee recommends leadership development courses be
> required for certain positions. The NWCG's Training Working Team,
> Incident Operation Standards Working Team (IOSWT), and the states will
> review the recommendations and make a decision.

-   **How will we determine if the leadership development courses are
    successful and if the training results in better decision-making on
    an incident?**

> Frankly, measuring the success of leadership courses in the classroom
> may be easier than evaluating the results of the training in the
> field. Through evaluation tools used in the courses, students and
> trainers can immediately determine if the objectives of the training
> have been met. However, training is only one piece of the complex
> puzzle required to develop effective leaders. One of the most
> important strengths of the leadership development program is its blend
> of training, assessment, self-development and experience that allows
> students to put the concepts they've acquired into practice in the
> field, assess their success, modify their behavior if necessary, and
> then again evaluate their success. Through this process, the students
> and trainers can measure the progress of individuals who are growing
> as leaders. Ultimately, and long-term, we hope to attribute reduced
> numbers of accidents and fatalities to our success, and that if an
> accident or fatality does occur, leadership is not one of the
> contributing factors.

-   **The leadership development program sounds like it will cost
    agencies more money and time due to the additional training.**

> Developing effective leaders who will help manage one of the riskiest
> occupations in the country will require additional training, cost more
> money, and require more time and management support. However, consider
> the leadership development program as an investment -- in time, money,
> *and* management support -- that will help increase the effectiveness
> of our fireline leaders, which will, in turn, help ensure the safety
> of firefighters and the public from wildland fire.

-   **Leadership training is already built into several skills (S)
    courses. Why are we concerned about developing separate fire
    leadership courses?**

> An interagency analysis of the existing curricula found very little
> genuine leadership content in our existing S courses. While there are
> a few S courses that have "leadership" included in their titles, the
> analysis showed they actually addressed basic supervision skills
> rather than the leadership skills necessary for effective emergency
> incident response.

-   **Who will teach the Human Factors and Followership to Leadership
    courses?**

> Much like any other 100-level course, local agency instructors will
> teach Human Factors and Followership to Leadership.

-   **Why are leadership components not included in Position Task Books
    (PTBs)?**

> Although responsibility for PTBs belongs with the National Wildfire
> Coordinating Group's Incident Operation Standards Working Team, a
> leadership committee member will be evaluating each skill (S) course
> for leadership components when the course is due for revision. A
> subgroup of the leadership committee will also analyze the PTBs for
> certain key positions (CRWB, ICT3, etc.) and identify leadership
> elements that are missing or unclear in the task books, and ensure
> that tasks are written so they are understandable and measurable
> during a trainee assignment. Suggestions for clear wording for tasks
> related to leader duties will be forwarded to the IOSWT.

-   **I heard that Supervisory Concepts and Techniques (S-281) and
    Leadership and Organizational Development (S-381) might be phased
    out. Will the S-281 or S-381 courses that I am currently sending my
    folks to still count?**

> Yes, these existing courses will be used until NWCG's Training Working
> Team establishes the actual transition dates for them to be officially
> discontinued and replaced. That is estimated to begin in 2004 and
> continue through 2005.

-   **Shouldn't we be using agency instructors with wildland
    firefighting experience to teach courses such as Fireline
    Leadership, instead of contract instructors?**

> Most fire agencies don't have the resources to support the cadre skill
> and delivery demands for the type of training courses required at the
> higher level of a true leadership development curriculum. However, the
> Leadership Committee intends to set course standards and criteria in
> order to allow agencies to meet their delivery needs as they deem
> appropriate. This will allow agencies to establish a dedicated cadre
> or select from any vendor that can meet the standards/criteria for the
> courses

-   **I understand we're spending nearly \$1,000 per person for a
    one-week training session (Fireline Leadership). Why would we want
    to spend that much money on training for people who may or may not
    pursue a career in wildland fire management?**

> Fireline Leadership is critical basic training for entry-level career
> firefighters who are moving into leadership positions, such as small
> unit leaders. This course supplies the foundation individuals need to
> begin to take on more responsibility for actions and behaviors on the
> fireline. It's important that we prepare firefighters as well as
> possible to meet the demands of a wildland fire career, as opposed to
> withholding training on the chance that they will not stay in wildland
> fire management. The bottom line is if we want quality leaders, then
> we must provide quality training. Incidentally, similar courses in the
> private sector cost \$3,000-5,000 per person.

-   **What assurance do we have that folks won\'t be passed through the
    leadership modules before they are ready for the next level?**

> A training and development curriculum cannot be expected to replace
> supervisory and management responsibility. Screening and promotion is
> an agency's responsibility, and supervisors or managers in an
> organization determine who will fill their leadership positions.
> Within the NWCG fire community, individuals who evaluate and sign
> position task books have this responsibility.
>
> The organized leader development process should give our organizations
> more knowledge about leadership in general. In turn, it should be more
> difficult to promote underdeveloped leaders because everyone will be
> able to clearly define what leadership is, and easily identify whether
> people in leadership positions embrace commonly accepted values and
> principles.

-   **How are we selling the leadership development curriculum to
    agencies and their staff?**

> The "Report of the Leadership Task Group to the Training Working Team"
> has been posted on the internet for agencies and firefighters to
> review. This document provides valuable background information on
> leadership issues and contains 14 recommendations aimed at enhancing
> the development of leaders in wildland fire.
>
> By October 2002 a leadership web site will be established at
> leadership.gov. This site will include the status of the leadership
> development curriculum, resources available to those interested in
> developing leadership qualities, and other information.
>
> The Leadership Committee, consisting of representatives from federal,
> state and tribal wildland agencies, is constantly coordinating with
> and updating agencies, managers, geographic area training
> representatives and other on the status of the curriculum.

-   **Does the new leadership training apply only to operations
    personnel?**

> Absolutely not. Although effective leadership is critical in all
> incident operations, it's also very important to other aspects of
> incident management and helps ensure overall effectiveness and
> response. At this time, it is uncertain as to which positions in the
> Wildland and Prescribed Fire Qualifications System Guide (310-1) will
> *require* leadership training and which will *recommend* the training.

**[Potential Issues]{.smallcaps}**

-   Identifying Leadership Potential. The leadership development program
    recognizes that some individuals carry leadership traits, and
    through an integrated program of training, assessment and
    experience, these individuals can develop into effective leaders. At
    the same time, some individuals do not carry these traits, or they
    do, but they do not have the determination to develop themselves as
    leaders. The leadership development program will help identify
    potential leaders, and focus on developing these individuals.

-   Additional training. The leadership development curriculum is based
    on a set of courses that are connected conceptually from the least
    (follower) to the most (organizational leader) complex. Some
    existing courses will be used or modified to incorporate leadership
    concepts, and some new courses will be developed. Individuals who
    have advanced as leaders will require additional training; however,
    this will occur over a period of years. This training will take time
    and money, and some field offices may not feel able to bear the cost
    or investment of time. Developing individuals as leaders will
    require an investment -- of time, money and supervisor support.

-   Fire Leadership vs. Leadership Training. Agencies have established
    leadership curricula, however, these courses do not address the
    complexity of wildland fire and aviation operations and its inherent
    high-risk and high-stress situations.

-   Perception of Regimentation. The wildland fire and aviation
    leadership development program has adapted some of the military's
    techniques in its leadership exercises, and self-study and
    development, and its concept of leadership values and principles.
    Though the federal wildland community is not attempting to become
    militarist, the military has decades of experience in developing
    leaders, and we can use their knowledge and tools to help develop
    ours.

**[Quick Reference List]{.smallcaps}**

**Formal Curriculum**

> The Formal Curriculum is comprised of five courses that span the
> career of wildland management personnel. The curriculum focuses on
> developing leaders who can make effective decisions in critical,
> dynamic, high-risk situations on emergency incidents. The courses
> include:

Human Factors - four hours at local unit with local instructor

> Followership to Leadership - six hours at local unit with local
> instructor
>
> Fireline Leadership - private vendor; 40 hours at Wildland Fire
> Apprenticeship Academy
>
> and other locations; \$900/student

Incident Leadership - under development; private vendor; 32 hours

Advanced Incident Leadership - under development; 32 hours at NARTC

**Leadership Toolbox**

> The Leadership Toolbox is a on-line set of reference and assessment
> tools, located at www.fireleadership.gov, geared toward helping
> individuals further their study of leadership through self-directed
> learning. The resource includes links to professional reading on
> leadership, self-assessment tools and other information pertinent to
> leadership.

**Leadership Committee**

Larry Sutton, Chair; BLM, National Interagency Fire Center (NIFC)
208.387.5374

Jim Cook, Vice-Chair; Forest Service, NIFC; 208.387.5204

Pam McDonald; Committee Administrative Support; BLM, NIFC; 208.387.5318

Tim Blake; BLM; NIFC; 208.387.5796

John Wood; FWS; California; 530.667.3115

J.T. Reynolds; NPS; California; 760.786.3240

Nancy Lull; BLM; NIFC; 208.387.5508

Joe Stutler; Northtree Fire International; Oregon; 541.318.8775

Steve Thomas; Oregon Department of Forestry; 503.945.7204

Mark Linane; Ventura County FD; California; 805.482.1769

**Resources**

-   Leadership Web Site: www.leadership.gov

-   National Interagency Fire Center: www.nifc.gov

-   National Wildfire Coordinating Group: www.nifc.gov

-   Wharton Center for Leadership and Change Management:

http://leadership.wharton.upenn.edu

-   National Advanced Resource Technology Center: www.nartc.net

-   Fire Management Professional Reading List: www.leadership.gov