Helicopter Manager Shortage Group

Report

June 2003

*Kevin Hamilton Comments- in red (5/28/03).*

In 2002 the Forest Service FAM Assistant Director**, (**Aviation), Tony
Kern tasked a small group to look into helicopter manager shortage
issues. The group consisted of:

> Jon Rollens -- Group Lead
>
> Glen Johnston -- USFS National Helicopter Operations Specialist
>
> Kevin Hamilton -- BLM National Helicopter Program Leader
>
> Larry Hindman -- USFS R-3 Aviation Safety Manager
>
> Howard Roose -- BLM Fire Planning Specialist
>
> Jim Ziobro -- Oregon DNR Aviation Operations representative

The group met twice in Boise, ID, once in late 2002 and in May of 2003
and developed the following recommendations.

**[Background]{.underline}**:

The use of helicopters in support of wildland fire suppression has
steadily increased over the last several years. The versatility and
capability of helicopters is well suited to wildland fire suppression.
There are approximately 150 exclusive use helicopters and crews on
contract with the Forest Service (FS) and Department of Interior (DOI)
that fill some of this demand, however, these resources are primarily
justified, funded, and used for local initial attack. The remainder of
the demand is filled primarily with Call When Needed (CWN) helicopters
staffed with CWN helicopter managers and crewpersons. Although data
indicates that there are over 1,000 qualified helicopter managers in the
FS and DOI alone, filling orders for helicopter managers continues to be
difficult at best during times of high demand. This indicates a possible
*availability* problem, not necessarily a shortage problem.

Every year, the wildland firefighting agencies plan to use CWN
helicopters. When the program was initiated, there were less than 50
Type I and II helicopters contracted for use. Today, there are almost
600 helicopters signed up under CWN contract (this includes Type III and
IV helicopters, as well). Although the federal agencies know CWN
helicopters will be used, little or no funding is put into the upfront
management. Instead, the wildland fire community relies on the "militia"
to manage CWN helicopters, and are then surprised when there is a
shortage of helicopter managers. There are a variety of reasons for
these helicopter manager shortages, but the primary reason is no upfront
funding for the CWN program. Additionally, the original intent of the
CWN program was to supplement our exclusive use program. It has become
the ~~normal~~ source for the majority of helicopters used for extended
and large fire support. In addition, increased use of severity funding
has provided many units with extensive utilization of CWN initial attack
helicopters. This affects the supply of aircraft and helicopter
personnel available for assignment to large project fires. Approximately
60% of the national total use and cost of helicopters is currently
filled with CWN aircraft.

**[Assumptions]{.underline}**

-   Group supports the use of helicopter managers and believes their
    continued use is important in providing safe and efficient
    helicopter utilization.

-   Current exclusive use helicopter crew size is assumed to be 9 to10
    total personnel with one PFT GS-9 manager, one PSE GS-8 assistant
    manager, one PSE GS-6 lead crewperson, 2 temporary GS-5 senior
    firefighters, and the remainder temporary GS-4 crewpersons.

-   Cost estimates in the following options are based on GS-6 helicopter
    managers and GS 4/5 crewpersons.

-   40 years of experience doing helicopter operations is the basis for
    our current policies relating to helicopter operations.

-   

**[Recent Program Updates]{.underline}**

After the fire season of 2000, several helicopter management policies
were changed and incorporated into the latest revision of the
Interagency Helicopter Operations Guide (IHOG). These changes include:

-   Allowing standard category Type I and II helicopters to be
    designated for "limited-use" missions, with prior approval at the
    State or Regional level. Limited-use missions are defined as
    external cargo hauling or dropping water/retardant. This allows
    Interagency and State aviation managers to use standard category
    helicopters for limited-use missions, eliminating the need for a
    helicopter module. Helicopter managers are still required for
    limited-use missions.

-   Managing two limited-use helicopters with one manager has become an
    acceptable option during periods of personnel shortages (when
    certain conditions are met).

-   All references to Fire Helicopter Manager qualification and training
    requirements were removed from the IHOG, ~~and placed in individual
    agency policy documents~~. This removed conflicting requirements
    between IHOG and 310-1 Helicopter Manager requirements.

-   310-1 Helicopter Manager requirements were modified so that
    Call-When-Needed Helicopter Managers were no longer required to have
    an arduous physical fitness level, potentially increasing the pool
    of available personnel to function as Helicopter Managers. The new
    310-1 requirements actually streamlined the process for individuals
    to attain qualifications.

-   For the first time, a Helicopter Manager Training course was adopted
    by NWCG. This allowed personnel who may have otherwise not had an
    opportunity to become a Helicopter Manager an avenue to become
    qualified as a Helicopter Manager.

**[Recommendations]{.underline}**

> 1\. Increase all 150, 96ea. USFS, 28ea. BLM, (all 5 agencies)
> Exclusive Use Crews by 3 positions (manager plus 2 crewpersons) (GS-6,
> 5 & 4, plus equipment, supplies, training and vehicle) assume that
> WAE's will be 13-13 tours with National funding. Each crew will be
> expected to provide a 3 person helicopter module to staff a CWN
> helicopter upon request.
>
> 2\. Additional manager only added to each exclusive use helitack crew,
> WO funded, required national availability.
>
> 3\. Increase tours and numbers of WAE's(crew size same), assume 10
> person crew with 3 members having WAE's, will increase tour of three
> additional to WAE's, Total would be 6 WAE's, Start date sufficient to
> meet southern latitude and Alaska needs, crew size 10 personnel, 6 of
> these crew members will be WAE's

Assumption is a crew consisting of 3 people, 1 -- GS-6, 1- GS-5, 1-GS-4,
with a ~~tour of~~ 13-13 tour. Blue Ribbon panel emphasis to
professionalize agency aviation organizations would lead us to PFT
tours. These modules will include equipment, supplies, training and
vehicle.

> 4a. Increase National Type II Exclusive Use (7) crew tours, start
> earlier and increase crew size. Tours/start date (3/1)(crew
> only)/increase crew size, plus three personnel.
>
> 4b. Crew size same as current, but all 6 crewmembers will have PFT or
> PSE appointments.
>
> 5a. Fully implement the National Study of Type I and II helicopters to
> support Large Fires (total of 13 type II's and 2 type I's).
>
> 5b. Update National Study of Type I and II helicopters to support
> large fires -- fund and staff to update study levels.

ADDITIONAL CONSIDERATIONS:

-   National Guard and Military -- Not a valid option. Policy being
    updated to address the use of these resources.

-   Contract for helicopter manager position. Assume this will be
    included in broader competitive sourcing study of FAM.

-   Utilize Exclusive Use Helicopters and crews in a more efficient way
    -- (Centralize). Use Exclusive Use crews as a rule, not as backup.

-   Increase availability and frequency of Helicopter Manager Training
    and workshops. States and local government are an untapped resource
    for helicopter managers, work with states to ensure they can
    participate in the training ~~of~~ and qualification of their
    personnel as helicopter managers. (this is ongoing)

-   Adjust Helicopter Management (Module) staffing levels. (see letter
    from RAO and RASM council)

-   Fully utilize helicopter performance/efficiency index in contract
    award and dispatching of helicopters.

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