2022 BLM Utah Aviation Plan

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2022 BLM National Aviation Plan and BLM 

Utah

State Aviation Plan

A Commitment to Aviation Safety
2022 BLM Utah Aviation Plan

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2022 BLM Utah Aviation Plan

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This plan provides comprehensive information regarding the Bureau of Land Management (BLM) 

aviation organizations, responsibilities, administrative procedures, and policy. This plan is 

implemented through a BLM Utah Instruction Memorandum. 

The primary distribution of this document is electronic and available at: 

https://www.nifc.gov/about-us/our-partners/blm/aviation/library

BLM Fire and Aviation Directorate 

National Aviation Office

208-387-5180 

aviation.blm.gov 

National Interagency Fire Center

3833 South Development Ave. 

Boise, ID, 83705 

The BLM Utah State Aviation Plan is inserted in this document as a second tier to each section of 

the BLM National Aviation Plan, which is written in black text. The State Aviation Plan has been 

written in blue text, so it visually stands out as supplemental text. Each BLM District in Utah will 

add their Unit Aviation Plan language as the third tier to this document. The use of a different 

color font is suggested to visually differentiate Unit-level text. The State Aviation Plan will reside 

on the BLM National Aviation Office website in electronic format. Hyperlinks are used 

throughout the document to comply with Section 508 requirements. 
2022 BLM Utah Aviation Plan

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BLM Utah State Office

440 West 200 South, Suite 500 

Salt Lake City, UT 84101-1345 

Trevor Pollock

State Aviation Manager 

tpollock@blm.gov

435-592-4919

This plan has been:

Prepared by: Date: April 6, 2022

Trevor Pollock (Acting)

State Aviation Manager

CHRISTOPHER 

DELANEY

Digitally signed by 

CHRISTOPHER DELANEY

Reviewed Date: 2022.04.11 11:22:28 -06'00' Date by:

Christopher Delaney

State Fire Management Officer

Approved by: Date

State Director
2022 BLM Utah Aviation Plan

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1.0 AVIATION PLAN ................................................................................................................................................. 8

1.1 PURPOSE .................................................................................................................................................................. 8

1.2 MISSION STATEMENT.................................................................................................................................................. 8

1.3 AVIATION PROGRAM OBJECTIVES .................................................................................................................................. 9

1.4 NATIONAL FIRE AIRCRAFT MANAGEMENT STRATEGY ......................................................................................................10

1.5 AUTHORITY .............................................................................................................................................................11

1.6 POLICY ...................................................................................................................................................................11

2.0 AVIATION MANAGEMENT ORGANIZATIONS.................................................................................................... 13

2.1 DEPARTMENT OF THE INTERIOR (DOI) .........................................................................................................................13

2.2 NATIONAL AVIATION GROUPS/COMMITTEES.................................................................................................................13

2.3 BUREAU OF LAND MANAGEMENT (BLM) .....................................................................................................................15

2.4 NATIONAL AVIATION OFFICE - NAO (FA-500)..............................................................................................................16

2.5 BLM STATE/DISTRICT/FIELD OFFICE ORGANIZATIONS ....................................................................................................21

2.6 AVIATION POSITIONS ................................................................................................................................................25

3.0 ADMINISTRATIVE REQUIREMENTS .................................................................................................................. 30

3.1 GENERAL ................................................................................................................................................................30

3.2 REPORTING AND 2021 NATIONAL AVIATION PLAN DOCUMENTATION REQUIREMENTS..........................................................30

3.3 AVIATION PLANS: NATIONAL, STATE, UNIT, AND PROJECT ...............................................................................................30

3.4 AIRCREW ORIENTATION BRIEFING PACKAGE ..................................................................................................................32

3.5 LAND USE POLICY FOR AVIATION ACTIVITIES..................................................................................................................33

3.6 BUDGET ................................................................................................................................................................. 33

3.7 AIRCRAFT FLIGHT SERVICE ORDERING ..........................................................................................................................33

3.8 AIRCRAFT CONTRACTS...............................................................................................................................................36

3.9 END PRODUCT CONTRACTS ........................................................................................................................................42

3.10 BLM SUPPLEMENTAL FIRE AIRCRAFT ACQUISITION.......................................................................................................44

3.11 COOPERATOR AIRCRAFT ..........................................................................................................................................45

3.12 SENIOR EXECUTIVE SERVICE (SES) FLIGHTS .................................................................................................................47

3.13 BLM LAW ENFORCEMENT FLIGHTS ...........................................................................................................................47

3.14 SEARCH AND RESCUE (SAR) FLIGHTS .........................................................................................................................48

3.15 NATIONAL GUARD AND UNITED STATES MILITARY AIRCRAFT FLIGHTS ..............................................................................48

3.16 UNMANNED AIRCRAFT SYSTEMS (UAS) FLIGHTS..........................................................................................................49

3.17 DISPATCHING BLM AIRCRAFT - FLIGHT REQUESTS........................................................................................................50

3.18 AIRCRAFT USE PAYMENT SYSTEMS ............................................................................................................................53

3.19 CODING FOR FLIGHT USE REPORTS ............................................................................................................................54

3.20 FEPP...................................................................................................................................................................55

3.21 FBMS ................................................................................................................................................................. 56

3.22 AVIATION PROGRAM REVIEWS..................................................................................................................................56

3.23 NEW PROGRAM REQUESTS ......................................................................................................................................56

4.0 AVIATION SAFETY MANAGEMENT SYSTEMS.................................................................................................... 57

4.1 GENERAL ................................................................................................................................................................57

4.2 SAFETY MANAGEMENT SYSTEMS (SMS).......................................................................................................................57
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4.3 POLICY ...................................................................................................................................................................57

4.4 RISK MANAGEMENT .................................................................................................................................................61

4.5 ASSURANCE ............................................................................................................................................................63

4.6 PROMOTION ...........................................................................................................................................................65

5.0 AVIATION OPERATIONS................................................................................................................................... 67

5.1 GENERAL ................................................................................................................................................................67

5.2 POLICY, OPERATIONAL GUIDES AND HANDBOOKS...........................................................................................................67

5.3 PUBLIC/CIVIL AIRCRAFT OPERATIONS...........................................................................................................................67

5.4 BLM EMPLOYEES ON NON-BLM AIRCRAFT ..................................................................................................................68

5.5 PASSENGERS ...........................................................................................................................................................68

5.6 EMERGENCY EXCEPTION TO POLICY: ............................................................................................................................69

5.7 CATEGORIES OF FLIGHT .............................................................................................................................................70

5.8 FLIGHT PLANNING ....................................................................................................................................................70

5.9 FLIGHT FOLLOWING..................................................................................................................................................71

5.10 RADIO FREQUENCY MANAGEMENT/COMMUNICATIONS ................................................................................................73

5.11 OVERDUE, MISSING OR DOWNED AIRCRAFT................................................................................................................73

5.12 MISHAP RESPONSE.................................................................................................................................................73

5.13 TRANSPORTATION OF HAZARDOUS MATERIALS ............................................................................................................74

5.14 INVASIVE SPECIES CONTROL .....................................................................................................................................74

5.15 FIRE CHEMICALS, AERIAL APPLICATION POLICY NEAR WATERWAYS..................................................................................74

5.15.1 STORMWATER POLLUTION PREVENTION PLANNING ...................................................................................................75

5.16 SEARCH AND RESCUE (SAR).....................................................................................................................................75

5.17 LARGE AIRTANKER (LAT), AND VERY LARGE AIRTANKER (VLAT) OPERATIONS...................................................................75

5.18 AIRTANKER/SEAT BASE OPERATIONS ........................................................................................................................76

5.19 SEAT OPERATIONS ................................................................................................................................................76

5.20 FOREIGN AIRTANKER OPERATIONS.............................................................................................................................77

5.20.1 WATER SCOOPER OPERATIONS ..............................................................................................................................77

5.21 AIR ATTACK, ASM AND LEAD PLANE OPERATIONS........................................................................................................77

5.22 HELICOPTER OPERATIONS ........................................................................................................................................79

5.23 AERIAL IGNITION OPERATIONS..................................................................................................................................81

5.24 WILD HORSE & BURRO OPERATIONS (WH&B)...........................................................................................................82

5.25 AERIAL CAPTURE, ERADICATION AND TAGGING OF ANIMALS (ACETA) .............................................................................82

5.26 SMOKEJUMPER OPERATIONS ....................................................................................................................................82

5.27 LIGHT FIXED WING OPERATIONS...............................................................................................................................82

5.28 LAW ENFORCEMENT OPERATIONS (LE) ......................................................................................................................83

5.29 UNMANNED AIRCRAFT SYSTEMS (UAS) .....................................................................................................................84

5.30 FLEET AIRCRAFT .....................................................................................................................................................84

5.31 NON-FEDERALLY APPROVED AIRCRAFT.......................................................................................................................85

5.32 SNOW OPERATIONS................................................................................................................................................85

6.0 AVIATION TRAINING........................................................................................................................................ 86

6.1 GENERAL ................................................................................................................................................................86

6.2 MANAGEMENT RESPONSIBILITY ..................................................................................................................................87

6.3 INSTRUCTOR STANDARDS...........................................................................................................................................88

6.4 DEVELOPMENT ........................................................................................................................................................88

7.0 AIRSPACE COORDINATION............................................................................................................................... 90
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7.1 INTERAGENCY AIRSPACE COORDINATION ......................................................................................................................90

7.2 FLIGHT PLANNING, HAZARDS AND OBSTRUCTIONS..........................................................................................................90

7.3 FIRE TRAFFIC AREA (FTA)..........................................................................................................................................91

7.4 TEMPORARY FLIGHT RESTRICTION (TFR) ......................................................................................................................91

7.5 NATIONAL FIREFIGHTING AIRCRAFT TRANSPONDER CODE (1255) .....................................................................................91

7.6 AIRSPACE BOUNDARY PLAN .......................................................................................................................................91

7.7 AIRSPACE DECONFLICTION .........................................................................................................................................92

7.8 AIRSPACE CONFLICTS ................................................................................................................................................93

7.9 OPERATIONS ALONG FOREIGN BORDERS.......................................................................................................................93

7.10 AIRSPACE AGREEMENTS – MEMORANDUMS OF UNDERSTANDING...................................................................................93

7.11 EMERGENCY SECURITY CONTROL OF AIR TRAFFIC (ESCAT)............................................................................................94

8.0 AVIATION SECURITY – FACILITIES/AIRCRAFT.................................................................................................... 95

8.1 AVIATION SECURITY POLICY........................................................................................................................................95

8.2 USFS FACILITIES SECURITY ASSESSMENTS .....................................................................................................................96

8.3 USFS SECURITY RESPONSE ACTIONS............................................................................................................................96

8.4 GENERAL AVIATION SECURITY AWARENESS PROGRAMS...................................................................................................96

8.5 COOPERATORS AIRCRAFT SECURITY .............................................................................................................................97

8.6 AIRCRAFT PHYSICAL SECURITY REQUIREMENTS...............................................................................................................97

8.7 AVIATION FACILITY SECURITY REQUIREMENTS................................................................................................................97

8.8 EXCEPTIONS ............................................................................................................................................................98

8.9 TRANSPORTATION SECURITY ADMINISTRATION (TSA) .....................................................................................................98

9.0 AVIATION FACILITIES ....................................................................................................................................... 99

9.1 GENERAL ................................................................................................................................................................99

9.2 AVIATION FACILITIES (PERMANENT AND TEMPORARY) .....................................................................................................99

9.3 TEMPORARY OPERATIONS BASES................................................................................................................................. 99

9.4 SAFETY...................................................................................................................................................................99

9.5 PERMANENT FACILITY CONSTRUCTION PLANNING/FUNDING AND MAINTENANCE...............................................................100

9.6 BLM OWNED/OPERATED AIRSTRIPS .........................................................................................................................100

APPENDIX CONTENTS.......................................................................................................................................... 101

APPENDIX 1 - BLM NATIONAL AVIATION ORGANIZATION DIRECTORY ................................................................ 102

APPENDIX 2 - SES FLIGHT SCHEDULING GUIDE .................................................................................................... 103

APPENDIX 3 – LATITUDE/ LONGITUDE INFORMATION ........................................................................................ 106

APPENDIX 4 - BLM SAFECOM MANAGEMENT ROLES........................................................................................... 108

APPENDIX 5 - OAS AVIATION PROGRAM EVALUATION SCHEDULE ...................................................................... 109

APPENDIX 6 - BLM CARGO LETDOWN OPERATIONS ............................................................................................ 110

APPENDIX 7 - BLM FLEET AIRCRAFT STANDARD OPERATIONS PROCEDURES....................................................... 145

APPENDIX 8 – ACTING VS POINT OF CONTACT .................................................................................................... 150

APPENDIX 9 - ACRONYMS.................................................................................................................................... 151
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1.0 Aviation Plan 

1.1 Purpose

The purpose of the Bureau of Land Management (BLM) National Aviation Plan (NAP) is to 

describe National Aviation Office (NAO) leader’s intent, authority, role and responsibilities, 

program objectives, and to provide strategic and operational guidance to each organizational 

level. The NAO identified the need for a cohesive national aviation management plan that will 

allow all state, district/field offices, and aviation users to easily acquire the necessary information 

and policy to manage the BLM aviation program. Each organizational level plan provides the 

detailed operational procedures pertinent to their organization. This plan is supplemental and 

does not replace the policy as described in the Departmental Manual or the 

BLM Manual 9400 – Aviation Management. 

1.1.1 Purpose 

This plan sets forth policy, procedures, and guidance to implement the Aviation Management 

Program for BLM Utah. The purpose is to clarify and standardize aviation management 

procedures and operations for all employees in the BLM Utah, independent of organizational 

level. This plan is supplemental to Departmental Manuals 350-354, BLM Manual 9400 – Aviation 

Management, and BLM National Aviation Plan (NAP).

1.2 Mission Statement

The NAO is responsible for supporting BLM through an active and professional aviation 

organization that: 

• Develops and coordinates effective aviation policy and management processes. 

• Provides guidance for aviation programmatic and operational risk management. 

• Leads aviation safety assurance and promotion programs. 

• Provides aircraft acquisition support as specified by BLM management objectives.

• Develops and promotes a skilled aviation management workforce.

1.2.1 Mission Statement 

The BLM Utah aviation program provides direction and technical assistance to the State Office, 

District, and Field Office resource management, law enforcement, and fire suppression programs. 

The State Aviation Manager (SAM) assists with coordination between BLM Utah and the BLM 

National Aviation Office, Fire Operations, other BLM State programs, and cooperators. 

Promote efficiency: The aviation program emphasizes coordinating BLM Utah aviation resources 

between Districts, between cooperators within Utah, and the BLM National Aviation office. 

Acquisition support: Be a focal point for coordination of aviation acquisition between BLM Utah 

and the BLM National Aviation Office and DOI Acquisition Services Directorate (DOI AQD). 

Aviation safety: Assist with developing systematic safety processes, promotion of safety systems, 

and monitoring/ evaluation. 
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1.3 Aviation Program Objectives

The BLM aviation program provides the aviation tools to meet public expectation for efficient and 

safe management of the National System of Public Lands. Aviation management balances mission 

goals, environmental considerations, available funding and safety of involved personnel. 

Safety: The priority in all BLM aviation missions is the safety of employees, contractors, 

cooperators and the public.

• Risk management as part of Safety Management Systems (SMS) will be integral in all 

aviation missions and programs.

• Aviation personnel are empowered and expected to manage the risks of aviation 

operations and make reasonable and prudent decisions to accomplish the mission.

• Aviation personnel must take every opportunity to plan missions thoroughly, in respect to 

the aircraft and environment in which they operate.

• Individuals will be held accountable for their decisions, which should be based on policy, 

principles, risk management, training, experience and the given situation.

• The Bureau is committed to ensuring our workplaces are free of recognized hazards. 

Prior to conducting any mission, all risks will be mitigated to the lowest acceptable level 

possible.

Professionalism: BLM personnel performing aviation functions must be service oriented and 

meet all qualification requirements of the Departmental and Bureau manuals, handbooks, and 

guides. 

Diversity: Individual development, employee wellness and workforce diversity will be 

emphasized at all levels of the BLM aviation program. 

Innovation: Management at all levels is responsible for enhancing the aviation program with a 

commitment to aviation safety and operational efficiency.

1.3.1 BLM Utah Aviation Program Objectives

The BLM Utah aviation program’s primary objective is the safety of personnel and the public 

working with BLM operational controlled aviation activities. An indicator of a healthy safety 

program incorporates principles that are pillars of safety culture as described in Safety 

Management Systems.

• Safe, effective, and efficient aviation operating policy at the State and District level.

• Continual use of operational risk management for all stages of aviation activities.

• Foster a reporting culture; where small seemingly insignificant events are identified and reported.

• Promote training, the sharing of aviation safety information, and safety awards.

• Risk Management will remain incorporated into all aviation operations.

• Line Managers are responsible to maintain the commitment to aviation safety and efficiency for all 

aircraft missions.

• Planning for flight operations must include safety, risk management, supervision, organization, and 

evaluation.

• Aviation personnel will be qualified and appropriately trained to standards.

• Aviation personnel will be provided emphasis and consideration for individual development, 

employee wellness, and workforce diversity and inclusion.
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1.4 National Fire Aircraft Management Strategy

Aviation resources are one of several tools available to accomplish land management objectives. 

The proper utilization of aircraft in support of resource management programs serve as a force 

multiplier when dealing with issues of time, remoteness, terrain, large areas and distances. Fire 

suppression aviation resources will be mobilized at the earliest opportunity when new starts are 

detected to maximize the effectiveness of initial attack resources. 

This national strategy will:

• Optimize overall aviation capability.

• Apply effective management controls to suppression costs.

• Ensure aviation assets are assigned to areas of greatest risk and/or highest probability of 

success. 

• Maximize operational flexibility and mobility.

• Contribute to interagency suppression efforts.

The BLM national fire aircraft fleet composition is based in part on the National Interagency 

Aviation Council (NIAC) Aviation Strategy document. Current and out-year appropriations 

ultimately influence overall year to year fleet configuration. Any changes in aircraft type or 

capability must be either supported and approved by the Assistant Director of the BLM Fire and 

Aviation Directorate (FA-100) or reflected in this document. Baseline numbers of aircraft, by 

category, are derived in part from either the Interagency Aviation Strategy approved by the Fire 

Executive Council (FEC) and NWCG in 2008 or will be based on the new 2022 BLM Aviation 

Strategic Plan as adopted. Changes to the BLM fire aircraft fleet shall be determined and 

approved by the Division Chief, Aviation in coordination with the Assistant Director of Fire and 

Aviation. If budget constraints dictate a reduction in core aviation assets, these reductions will be 

absorbed primarily in categories that have the most elastic, On Call component and/or that do 

not impact aerial delivered firefighter capabilities such as SEAT’s, Scooper’s, ATGS’s, and Utility

Aircraft. When planning tools or strategic plans indicate an increase in aircraft numbers, aircraft 

will be attained through CWN/On-Call procurement and hosted in locations that are best suited to 

logistically support both the aircraft and personnel associated.

To maximize effectiveness and efficiency, aviation resources should be centrally controlled, and 

operations must be locally executed. National strategy considers all BLM fire aircraft and 

assigned personnel to be national resources available for immediate assignment to areas of 

greatest national need, regardless of their status in the National Dispatching System. 

The BLM national aircraft management strategy is predicated on the NAO providing oversight to 

all BLM fire aircraft acquisition, coordination and allocation of aircraft between states. To the 

extent possible, BLM will acquire aircraft that provide the best performance, capacity, speed, 

technology, and safety features that are available and affordable. Government ownership, longterm contracts, multiple-aircraft contracts, sharing of contracts and innovative procurement 

methods will be explored to achieve economies whenever possible. The NAO will modify 

contract terms (designated base, MAP, etc.) as required to ensure maximum utilization and 

effectiveness of firefighting aircraft.

The NAO coordinates with State Fire Management Officers (SFMO) and their staff on aircraft 

needs, availability, and re-positioning. 

The NAO facilitates aircraft pre-positioning with funding charge codes. During fire season, BLM 

exclusive use aircraft will be activated and mobilized to meet BLM’s fire needs to the extent 

possible. Once authorized and acquired, all BLM fire exclusive use aircraft, other nationally 
2022 BLM Utah Aviation Plan

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funded aircraft (i.e. On-call/CWN contract task orders) and severity funded aviation resources will 

be considered national resources subject to pre-positioning by SFMOs within their states, and by 

the national office on a national basis. This includes aviation personnel such as single engine 

airtanker (SEAT) managers and Air Tactical Group Supervisors (ATGS). The NAO will 

coordinate with SFMOs and State Aviation Managers (SAM) prior to any aircraft movements. 

Supplemental fire aircraft acquisition will be in accordance with BLM NAP 3.10. 

Aircraft need and staffing is very dynamic during the wildland fire season. Each aviation facility 

that hosts wildland fire assets should evaluate minimum staffing and maximum aircraft capacity 

to meet aircraft surge. The district/unit aviation plan should provide details identifying aircraft 

capacity, staffing and as a minimum reference appropriate NWCG aviation standards. The plan 

should include proper turn down protocol and be readily available for employees at each 

identified facility.

1.4.1 BLM Utah Aircraft Management Strategy 

Exclusive use contracted fire aircraft are funded through the BLM National Aviation Office (FA500) and coordinated by the State Fire Management Officer (SFMO). The aircraft are intended 

primarily for initial attack. Discretion to utilize the aircraft for non-initial attack operations is at 

the Fire Management Officer level with coordination with the State Office Duty Officer. 

Assignment of exclusive use and supplemental aircraft outside of the state for extended attack or 

large fire requires notification with the State Office Duty Officer. The State Office Duty Officer 

shall coordinate with District FMO’s/ Duty Officers related to the movement of aircraft within the 

administrative boundaries of BLM Utah based on established priorities and anticipated critical 

fire weather.

1.5 Authority

This plan fulfills the Departmental Manual (DM) requirements outlined in 350 DM 1, Appendix 3, and 

BLM Manual 9400.3 Directives. This plan has been developed to provide policy standardization for all 

BLM aviation programs. 

1.5.1 Authority 

This operational plan meets BLM policy requirements as described in BLM Manual 9400 and 

BLM National Aviation Plan. 

1.6 Policy

BLM aviation management and operations will be conducted within policies contained in the Federal 

Aviation Regulations, DOI 350-354 Departmental Manuals, Operational Procedures Memorandums 

(OPM) and Handbooks (HB), and BLM Manual 9400. In addition, the current version of the following 

Handbooks, Plans and Guides constitute BLM Aviation policy as specified in the BLM Manual 9400. 

Exemptions/Waivers: Exemptions/waivers to Federal Aviation Regulations and DOI regulations must 

be requested in writing to the BLM Aviation Division Chief. Final approval will reside at the OAS 

Director level (reference 350 DM 1.10). The following are standing waivers that have been granted 

and remain in place as overarching policy will not be changed:

• Waiver for Exemption from 351 DM 1, Aviation Life Support Equipment Handbook, granted by 

BLM Director, Office of Fire and Aviation to BLM State Director, Alaska on 05/23/97. This 
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waiver is approved only for Alaska and allows special use mission operations personnel to 

wear rubber boots as necessary.

• Waiver for Exemption from 351 DM 1, Aviation Life Support Equipment Handbook, granted by 

BLM Director, Office of Fire and Aviation on 05/06/98 waiving the requirement for flight helmets

in all multi-engine airplanes for special use, lead plane and smokejumper operations.

• Waiver to 351 DM 1.9B(1) granted by OAS Director to BLM/BIA on 02/14/14. This waiver 

authorizes the applicable SEAT and Fire Boss contracts to specify that flight time will begin 

when the aircraft begins to taxi to the runway with the intent to take off. 

1.6.1 Handbooks

• Aerial Capture, Eradication and Tagging of Animals Handbook (ACETA) 

• Aviation Life Support Equipment Handbook (ALSE)

• BLM Wild Horse & Burro Aviation Management Handbook (WH&B)

• Law Enforcement Short-Haul Policy 

• Military Use Handbook 

1.6.2 Plans

• BLM National Aviation Plan

• BLM State Aviation Plans, 

• BLM District/Unit Aviation Plans

1.6.2.1 Plans 

The BLM Utah State Aviation Plan (SAP) sets forth policy, procedures, and guidance for aviation 

programs/operations under BLM Utah operational control. The BLM Utah SAP is issued under 

State Instruction Memorandum (IM).

1.6.3 Guides/Standards

• NWCG Standards for Aerial Ignition (PMS 501) 

• NWCG Standards for Aerial Supervision (PMS 505)

• NWCG Standards for Airspace Coordination (PMS 520) 

• NWCG Standards for Airtanker Base Operations (PMS 508) 

• NWCG Standards for Helicopter Operations (NSHO PMS 510) 

• NWCG Standards for Water Scooping Operations (PMS 518)

• Interagency Smokejumper Pilots Operations Guide (ISPOG)

• Interagency Standards for Fire and Fire Aviation Operations (Redbook)

• Interagency Aviation Training Guide (IAT) 

• Interagency Standards for Fire Unmanned Aircraft Systems Operations (PMS 515)

• NWCG Standards for Aviation Transport of Hazardous Materials (PMS 513)

• NWCG Standards for Aviation Risk Management (PMS 530)
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2.0 Aviation Management Organizations

2.1 Department of the Interior (DOI)

Office of Aviation Services (OAS): The OAS is responsible for Departmental functions related to 

aircraft services. The OAS provides service offerings that include aviation safety services, aviation 

technical services, fleet management, fleet property accountability, aviation user training services, 

and flight scheduling and coordination services (reference 350 DM 1 for a complete list of functions 

and responsibilities). https://www.doi.gov/aviation/

Interior Business Center (IBC) Acquisition Services Directorate (AQD): The Aviation Acquisition 

Services Directorate provides department-wide centralized contracting for aviation flight services for 

DOI and DOI customers. Other acquisition management activities include property accountability and 

small purchase service in support of OAS and Bureau operations including DOI fleet aircraft. 

https://www.doi.gov/aviation/aqd

2.2 National Aviation Groups/Committees

Executive Aviation Board (EAB): The EAB is responsible for the DOI aviation program. The Board 

provides executive oversight and performance accountability and assures that Department-wide 

strategies and initiatives are developed collaboratively and implemented consistently. Additionally, the 

Board provides final review and approval of policy, when needed. The EAB is chartered under the 

direction of the Assistant Secretary for Policy, Management and Budget. The EAB has authority over 

all aviation related boards/committees/groups within the Department. The BLM permanent member of 

the EAB is the Bureau Deputy Director.

Executive Aviation Committee (EAC): The EAC is chartered under the direction of the EAB. The 

Committee follows guidance and directives from the EAB and ensures full collaboration among 

members to ensure that EAB and Department objectives are met. The EAC also provides Bureau and 

Department level aviation program performance measurement metrics to the EAB. The EAC is 

responsible for establishing a Bureau Aviation Managers working group to be the primary surrogate of 

the Committee to engage in all DOI aviation related issues at the operational Bureau level. The BLM 

permanent member of the EAC is the Assistant Director, Fire and Aviation.

Executive Aviation Sub-Committee (EAS): The EAS is an advisory group for the EAC. The BLM 

representative to the EAS is the Division Chief, Aviation. 

National Wildfire Coordinating Group (NWCG): The purpose of NWCG is to coordinate programs 

of the participating wildfire management agencies to avoid wasteful duplication and to provide a 

means of constructively working together. Its goal is to provide more effective execution of each 

agency’s fire management program. The group provides a formalized system to agree upon 

standards of training, equipment, qualifications, and other operational functions. Agreed upon 

policies, standards, and procedures are implemented directly through regular agency channels. 

• Membership: NWCG is made up of the United States Department of Agriculture (USDA) 

Forest Service; four DOI agencies: BLM, National Park Service (NPS), Bureau of Indian 

Affairs (BIA), and the Fish and Wildlife Service (FWS); the National Association of State 

Foresters and the Intertribal Timber Council. Membership is limited to one individual 

organization representative, except the Forest Service will be represented by two 

representatives – one from fire and aviation management and one from fire research.

https://www.nwcg.gov/
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National Interagency Aviation Committee (NIAC): The Committee is established to serve as a 

body of resident aviation experts, assisting NWCG with realizing opportunities for enhanced 

safety, effectiveness, and efficiency in aviation related operations, procedures, programs, and 

coordination. NIAC is chartered under the Equipment and Technology Branch of NWCG.

• Membership: Committee membership will reflect a mix of people who are knowledgeable 

in the subject area and who are from NWCG member agencies and organizations, 

including representation from OAS. 

https://www.nwcg.gov/committees/national-interagency-aviation-committee

NIAC Sub Committees:

• Interagency Aerial Supervision Subcommittee (IASS)

• ATGS Cadre

• Lead plane Cadre

• ASM Cadre

• Interagency Airspace Subcommittee (IASC)

• Interagency Airtanker Base Operations Subcommittee (IABS)

• Interagency Airtanker Board (IAB)

• Interagency Fire UAS Subcommittee (IFUAS)

• Interagency Aviation Training Subcommittee (IATS)

• Interagency SEAT Board

• Aviation Risk Management Subcommittee (ARMS)

• Smokejumper Aircraft Screening and Evaluation Subcommittee (SASES)

• Interagency Helicopter Screening and Evaluation Subcommittee (IHSES)

• Interagency Aviation Strategic Plan Subcommittee

• Interagency Helicopter Operations Subcommittee (IHOpS)

• Aerial Capture Eradication and Tagging Animals Unit (ACETA)

• Interagency Aerial Ignition Unit

• NWCG Standards for Helicopter Operations

• Interagency Helicopter Rappel Unit

 Rappel Equipment Subunit

• Helicopter Short-Haul Unit

• Interagency Water Scooper Subcommittee (IWSS)

BLM Aviation Management Group (AMG): AMG is chartered under the BLM Fire Leadership 

Team (FLT) to provide BLM leadership and expertise in all areas of aviation management. The 

AMG will promote aviation safety, standardization, and efficiency in support of fire management 

and non-fire activities and provide representation in the development of aviation policy, 

acquisition plans and operational procedures.

• Membership: BLM; NAO program managers, State Aviation Managers, Liaison from Fire 

Operations (FA-300) and FLT. 

BLM Air Attack Committee: The BLM Air Attack Committee is formed under the authority of the 

AMG with the concurrence of the BLM FLT to provide national leadership in all areas of BLM air 

attack operations. Promote and coordinate safe, effective, and efficient fire operations in order to 

accomplish Bureau of Land Management (BLM) fire management objectives. This will be done in 

collaboration with the AMG in coordination with the BLM National Air Attack Program Manager.

• Membership: The AMG designee (Co-Chair), The BLM National Air Attack Program 

Manager, one liaison from the Fire Operations Group (FOG), one voting representative 
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each from those states with exclusive use air attack aircraft (ID, CO, MT, NV, OR, UT, 

AK). 

BLM Airbase Committee: The Airbase Committee (ABC) is formed under the authority of the 

AMG with the concurrence of the BLM Fire Leadership Team (FLT). The Airbase Committees 

mission is to provide BLM leadership expertise in all areas of air base facilities and operations.

Promote aviation safety, standardization, and efficiency in air base operations. Recommend 

opportunities for improvement in review and standardization of air base facilities. This will be 

done in collaboration with the AMG.

Membership:

• AMG representative (Co-Chair)

• One voting member from states with permanent BLM fixed wing air bases; AK, AZ, CA, 

CO, ID, MT, NM, NV, OR/WA, UT, WY.

• NIFC Ramp Representative

• Fire Chemicals Program Lead (FA-500)

BLM Helitack Committee: Chartered under the Fire Operations Group (FOG): The Helitack 

Committees mission is to provide national leadership in all areas of BLM Helitack operations.

Promote and coordinate safe, effective, and efficient fire operations in order to accomplish 

Bureau of Land Management (BLM) fire management objectives. This will be done in 

collaboration with and under the direction of the BLM Fire Operations Group in coordination with 

the BLM National Helicopter Program Manager and AMG.

2.2.1 National and Geographic Area Aviation Groups/ Committees 

The BLM Utah State Aviation Manager (SAM) is a member of the BLM Aviation Management 

Group (AMG). The group reviews and develops aviation management/operations procedures, 

policy, and acquisition plans. As the BLM Utah representative to the AMG, the SAM can take 

forward BLM Utah aviation issues. 

The BLM Utah SAM will participate in other national-level groups and committees as requested 

by NAO and approved by the Supervisor. 

Great Basin Aviation Working Committee: The Great Basin Operations Committee (BLM, USFS, 

NPS, USFWS, BIA, and States within the Great Basin Geographic Area) charters an aviation 

working committee to consider any aviation issue germane to the Great Basin interagency 

aviation operations and develop recommendations. Fire aviation issues can be brought forward 

through the Great Basin Operations Group or to the GBAWC representative. The BLM Utah 

SAM serves as the BLM Utah representative to this committee.

2.3 Bureau of Land Management (BLM)

BLM Director: The Director is responsible for the aviation management program. This 

responsibility is exercised through the Assistant Director for Fire and Aviation (FA-100).

Assistant Director, Fire and Aviation (FA-100): This position is responsible for aviation policy 

and program oversight. This responsibility is delegated and accomplished through the Division 

Chief, Aviation (FA-500). 
2022 BLM Utah Aviation Plan

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2.4 National Aviation Office - NAO (FA-500) (reference BLM NAP Appendix 1 for the NAO 

Staff contact information)

Division Chief, Aviation (FA-500): This position serves as principal aviation advisor to the 

Assistant Director for the BLM Fire and Aviation Directorate (FA-100), and other staff, BLM state 

offices, and Departmental aviation programs. This position supervises the Deputy Division Chief, 

Staff Assistant and Aviation Safety & Training Advisor.

• Identifies and develops Bureau aviation policies and procedures, as well as standardized 

technical specifications for aviation missions for incorporation into the directives system.

• Coordinates aviation-related activities and services between the Washington Office (WO), 

and states with other wildland firefighting, regulatory, investigative, and military agencies.

• Represents the BLM at interagency meetings, on interagency committees developing 

government-wide aviation policies, requirements, procedures and reports, at aviation 

industry meetings and conventions.

• Plans and conducts technical and managerial analyses relating to the identification of 

aviation organization and resources appropriate for agency use, cost-effectiveness of 

aviation, other specialized missions, aircraft acquisition requirements, equipment 

developmental needs, and related areas.

• Provides oversight of aircraft acquisition and fleet management, contract administration, 

aviation operations, aviation safety, security and risk management, reviews, and 

evaluations of state aviation programs.

Deputy Division Chief, Aviation: This position serves as the Deputy to the Division Chief and 

has responsibility for direction of all phases of the Aviation Division’s program of work. This 

position supervises and provides program guidance and technical direction to the Flight 
2022 BLM Utah Aviation Plan

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Operations Manager, Helicopter Program Manager, SEAT Program Manager, SEAT 

Coordinator, UAS Program Manager, and Ramp Services Supervisor. 

• Develops the BLM National Aviation Plan.

• Prioritizes and coordinates national allocation/reallocation of BLM fire aircraft.

• Manages the BLM NAO Operations, Labor, and fire exclusive use contract budgets.

• Coordinates contracting and cooperator aircraft requests with AQD/OAS. 

• Reviews states aircraft severity and preposition funding requests; coordinates with BLM 

Fire Operations.

• Serves as the standing Co-Chair of the AMG Committee. 

• Serves as the aviation liaison to the Fire Operations Group.

Flight Operations Manager: This position provides oversight and supervision for the Aerial 

Supervision Module (ASM) and Smokejumper programs and standardization of all BLM flight 

operations. 

• Serves on the Interagency Aerial Supervision Subcommittee (IASS) and leadplane cadre.

• May function as a qualified pilot. 

• Develops guidance for BLM aircraft and pilot standards.

• Develops and coordinates ASM and Smokejumper operational procedures, training, and 

certification. 

• Provides guidance on light and medium fixed-wing aircraft operations and standards.

• Primary point of contact for management of BLM Fleet (WCF) aircraft. 

• Assigns BLM representative on the Smokejumper Aircraft Screening Equipment and 

Evaluation Subcommittee (SASES) and Interagency Smokejumper Pilots Operation 

Guide Steering Committee. 

• Coordinates primary relief for the Fleet Smokejumper aircraft.

• Supervisor for the Air Attack Program Manager, Pilots and Development Pilots located 

within FA-500.

Aviation Safety & Training Advisor: This position provides leadership and technical expertise 

for aviation safety management systems, risk management and accident prevention programs.

Has oversight of aviation training for BLM, providing training/certification guidance (curriculum, 

course materials, and instruction) for BLM fire and resource management aviation personnel.

• Serves as the BLM investigation team member and/or liaison to National Transportation 

Safety Board (NTSB) and OAS accident investigation teams. 

• Oversees the BLM SAFECOM System and Management Roles. 

• Compiles BLM aviation safety statistics and analysis.

• Serves on accident review boards. 

• Develops and/or coordinates aviation training in support of BLM aviation programs. 

• Serves as a member of the Interagency Aviation Training Subcommittee (IATS).

• Serves as a member of the Interagency Aviation Risk Management Subcommittee 

(ARMS)

• Coordinates the development of web-based training for both vendor and government 

communities.

• Manages Aviation Leadership Development Initiative (ALDI) supported by the NAO.

• Primary point of contact for OAS Aviation Program Evaluations.

Helicopter Program Manager: This position provides oversight of the BLM helicopter program.

• Reviews requests for exclusive use contracted helicopters, and coordinates with AQD, 

OAS and State Aviation Managers. 

• Develops and establishes agency helicopter operational standards.

• Develops helicopter position requirements and training. 
2022 BLM Utah Aviation Plan

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• Conducts site visits, reviews and inspections. 

• Serves as a member of the Interagency Helicopter Operations Subcommittee (IHOpS), 

Interagency Helicopter Screening and Evaluation Subcommittee (IHSES) and BLM 

Helitack Committee.

• Coordinates movement of BLM EU helicopters from AK to L-48 and L-48 to AK.

• NAO point of contact for End Product Contracts that potentially have an aviation 

component.

Single Engine Airtanker (SEAT) Program Manager: This position provides oversight and 

guidance to the SEAT and Scooper programs. 

• Develops and coordinates requirements and training for the SEAT program. 

• Assists in development and review of contract specifications for National SEAT and Fire 

Boss On-call contracts.

• Performs site visits and inspections of SEAT operating bases. 

• Develops contract specifications in coordination with both AQD and industry 

representatives. 

• Chair of the Interagency SEAT Board. 

• Serves as BLM representative to the Interagency Airtanker Board.

• Develops the SEAT Operations Section of the NWCG Standards for Airtanker Base 

Operations. 

• Coordinates with the BLM State Aviation Managers on SEAT contract activation and 

allocation of aircraft.

• Functions as national liaison with State SEAT programs.

• BLM advisor to the Interagency Airtanker Base Subcommittee (IABS). 

• BLM national lead for fire chemicals development and implementation. Maintains and 

updates fire chemicals policy, plans and direction. National COR for fire chemical 

contracts, BPAs, and EERAs. Wildland Fire Chemicals Systems interagency technical 

contact and DOI liaison. DOI (except BIA) representative on the Fire Chemicals 

Subcommittee. Organizes and conducts national level training in fire chemical application 

and use.

SEAT Coordinator (SECO): This position is responsible for coordinating the allocation and 

reallocation of SEATs nationwide, management and oversight of the BLM fire chemical program 

and is the primary focal point for BLM airbase standardization.

• Advises the NMAC and the NICC of the current status, location and utilization of Federal 

and State contracted SEATs throughout the nation. 

• Makes best value determinations when hiring aircraft to meet field requirements. 

• Primary subject matter expert on fire retardants/suppressants and responsible for 

overseeing the Bureau fire chemicals program. 

• Provides leadership for the use of fire chemicals by developing and implementing 

procedures to assure safe, environmentally appropriate, and effective retardant and 

suppressant operations. 

• Functions as the Bureau representative on the Interagency Fire Chemical Board. 

• Works in coordination with the US Forest Service as the BLM’s Contract Officer 

Representative (COR) on the long-term retardant contract. 

• Provides technical expertise and assistance to BLM fire and aviation management for 

development of policy, guidance and direction regarding the establishment, management,

and utilization of airbases. 

• Coordinates with subject matter experts in the fields of environmental compliance, airfield 

design and aviation experts to assess current conditions of Bureau airbases to establish 

a baseline understanding of the scope and nature of existing issues. 
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• Establishes standards that ensure Bureau airbase compliance with all Federal and State 

requirements while creating and implementing best management practices. 

• Serves as the National Office representative to the BLM Airbase Subcommittee

UAS Program Manager: This position provides national guidance and standardization for BLM 

UAS programs.

• Serves as the national point of contact for BLM UAS Program. 

• Identifies and develops program need, growth, and capacity commensurate with 

evolution of UAS.

Communicates, coordinates, and collaborates with aviation leadership on UAS initiatives, 

standards, and performance expectations.

• Provides programmatic strategy and oversight to the development of UAS 

projects/missions.

• Coordinates the BLM national UAS training programs in conjunction with interagency 

partners.

• Provides BLM input to the NWCG Standards for Fire Unmanned Aircraft Systems 

Operations (PMS 515). 

• Serves as a member of the Interagency Fire Unmanned Aircraft Systems Subcommittee.

UAS Fleet Manager

• Coordinates the acquisition of agency owned/operated UAS in conjunction with SAMs 

and OAS/AQD.

• Evaluates, develops, and reviews exclusive use and on-call UAS contract specifications; 

coordinates with AQD, OAS and State Aviation Managers.

• Maintains an inventory of BLM owned UAS.

• Manages systems and payloads including maintenance, warranty, and repair. 

UAS Specialist: This position supports the UAS Program Manager in the implementation of the 

BLM UAS program. 

• Supports Bureau programs in the planning and execution of incident and resource 

UAS projects; reviews and approves project plans which require UAS. 

• Observes and monitors field applications of UAS to ensure compliance with Bureau 

policy. This will require field assignments to wildland fire suppression or resource 

management activities.

• Conducts fire UAS operations as a UAS Pilot (UASP), UAS Module Leader (UASL) or 

UAS Manager (UASM).

• Conducts non-fire UAS projects as required.

• Completes missions/projects safely, effectively, and efficiently in accordance with 

mission/project goals and objectives. 

• Develops Project Aviation Safety plans (PASP) to support national, state, and local UAS 

projects/missions. These plans are developed and implemented in accordance with DOI 

and BLM policy.

• Develops and evaluates sensor and data collection/processing equipment/techniques.

• Develops UAS training curriculum to support Bureau aviation programs.

• Coordinates and leads the presentation of UAS training programs in accordance with 

FAA, DOI, and BLM policy.

• Maintains a roster of qualified BLM UAS personnel.

• Develops and leads reporting, data collection, geospatial program.
2022 BLM Utah Aviation Plan

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• Coordinates with AQD, OAS and State Aviation Managers.

Air Attack Program Manager: This position provides national guidance and standardization for 

the BLM Air Attack program. 

• Develops and reviews exclusive use and on-call Air Attack contracts specifications, 

coordinates with AQD, OAS and State Aviation Managers. 

• Coordinates the BLM national ATGS training program (S-378, CRM, and associated flight 

training) in conjunction with interagency partners.

• Develops, coordinates, and implements strategic and tactical utilization of air attack 

aircraft, and associated personnel in conjunction with State Aviation Managers, 

Geographic Area Coordination groups, and interagency partners. 

• Provides BLM direction for the NWCG Standards for Aerial Supervision and relevant 

policy/operations documents. 

• Coordinates with Geographic Area Coordinating groups regarding the activities of the 

ATGS Cadre and the BLM Air Attack Committee. 

• Serves as a qualified ASM/ATGS Instructor/Final Evaluator and coordinates staffing for 

the BLM national ATGS training platform. 

• Serves as a member of the Interagency Aerial Supervision Subcommittee (IASS).

• Maintains a list of qualified BLM ATGS Instructors, and ATGS Final Evaluator personnel.

Air Tactical Supervisors (AITS): These positions serve as Air Tactical Supervisors on Aerial 

Supervision Modules.

• Develop and review ASM procedures, make recommendations to the Aerial Supervision 

Program Manager.

• Instruct NWCG S-378 ATGS and AITS courses and mentor trainee ATGS and AITS 

personnel.

• Serve as subject matter experts (SME) for aerial supervision, airspace coordination, 

SEAT and airtanker operations.

Air Tactical Pilots (ATP): These positions serve as ASM and/or Lead plane (LPIL) pilots.

• Serve as a contract project inspector for the BLM contracted ASM planes.

• Serve as an SME for aerial supervision, airspace coordination, SEAT and airtanker

operations.

• Develop and review ASM/Lead plane procedures, make recommendations.

• Provides aircraft and mission training for tactical resources as assigned.

Smokejumper Pilots: These positions serve as smokejumper pilots.

• Serve as an SME for smokejumper pilot operations, smokejumper operations and back 

country airstrip operations.

• Develop and review smokejumper pilot procedures and make recommendations.

• Provides aircraft and mission training for tactical resources as assigned.

Aviation Staff Assistant: This position provides a full range of administrative support to the 

national aviation staff. 

• Prepares and approves travel authorizations and vouchers, processes payroll, monitors 

budget reports and credit card statements to ensure expenditures are correctly made. 

• Works with the Financial and Business Management System (FBMS) to create purchase 

requisitions for interagency agreements, contracts, and requisitions. 

• Prepares all formal office correspondence, including memorandums, Instruction 

Memorandums and Information Bulletins. 

• Coordinates meetings and conferences for local and national-level events. 
2022 BLM Utah Aviation Plan

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Ramp Services Supervisor (FA-510): This position oversees and directs aircraft ramp 

operations providing ground aviation management and ground support services to based and 

transient aircraft, air crews, transient personnel and cargo on the NIFC Aircraft Ramp. 

• Ensures compliance with FAA, OSHA, EPA, BLM, OAS and airport aviation and security 

regulations.

• Develops the NIFC Ramp Services Operation Plan 

• Manages interagency flight helmet repair service through the NFES for participating 

agencies and cooperators.

Assistant Aviation Management Specialist/Pilot: This position is developmental and provides 

the incumbent with the skills and background to compete for vacancies at the State and National 

levels, GS-12 and above. This position works under the guidance of national program managers 

as assigned but is supervised by the Flight Operations Manager. 

• Provides assistance to program managers within the National Aviation Office.

• Serves as a Developmental Pilot functioning as a Pilot Trainee and Pilot-In-Command of 

single and multi-engine reciprocating and turbine powered airplanes under visual and 

instrument flight rules.

2.5 BLM State/District/Field Office Organizations

State Directors, District/Field Manager: Aviation responsibilities are outlined in 350 DM 1 Appendix 4. 

• State Directors are responsible for all aviation activities within their respective jurisdiction.

• Each state will assign a State Aviation Manager (SAM). The SAM position provides 

oversight of the state aviation program and support to the state/district/field offices on all 

aviation matters. 

• District/Field Managers are responsible for all aviation activities within their respective 

jurisdictions. 

• Each District/Field Manager will assign a Unit Aviation Manager (UAM) to provide 

oversight and staff assistance on all aviation matters. 

• District/Field Managers are responsible for review and approval of Project Aviation Safety 

Plans, when required, for aviation activities within their respective jurisdictions.

State Fire Management Officer (SFMO): The SFMO is responsible for providing oversight and 

approval of the acquisition and use of BLM fire aircraft within their state.

• Provides state strategic direction and guidance.

• Has the authority to prioritize the allocation, reallocation, pre-positioning and movement 

of all fire aircraft assigned to the BLM within their state.

• Coordinates with Districts/Units, Geographical Area Coordination Centers (GACC), and 

NAO to maximize the utilization of Exclusive Use aircraft assigned to their state. 

• Ensure all state assigned aerial resources are managed to maximize initial attack 

effectiveness. 

State Aviation Manager (SAM): The SAM serves as the principal aviation professional for the 

State Director and is responsible for providing aviation program management, oversight and 

support to district/field office aviation operations within the state. The SAM has functional 

responsibility in the following areas and should have a delegation of authority for each area of 

responsibility:

• Develops and implements the state aviation management plan and establishes aircraft 

safety and accident prevention measures.

• Reviews all Project Aviation Safety Plans (PASP) with a Final Risk Rating of “High” prior 

to implementation.
2022 BLM Utah Aviation Plan

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• Serves as the Contracting Officer’s Representative (COR) on all BLM aviation exclusive 

use contracts assigned to the state.

• Nominates candidates to the Contracting Officer for potential appointment as Alternate 

CORs (ACOR) and assigns Project Inspectors (PI) for all BLM exclusive use aviation 

contracts in their state. 

• Authorized to order aircraft and ensures all aircraft ordering and dispatching occurs via a 

dispatch office. 

• Provides aviation training support to the state office, field/district offices, and other 

cooperative agencies. 

• Provides statewide statistical analysis and A-126 reporting. 

• Coordinates with the NAO specialists regarding aviation issues. 

• Coordinates with other interagency partners on regional and state levels. 

• Is a member of a geographic area(s) coordinating group aviation committee. 

• Establishes an “Aviation Point of Contact” or designates an acting SAM when needed.

Ensures that acting SAM meet all training requirements and any state requirement for 

delegation (reference BLM NAP Appendix 8). 

• Reviews all potential End Product contracts that could conceivably utilize aircraft

(reference BLM NAP 3.9). 

• Collects annual BLM aviation statistics for the state to include all fire and resource flight 

hours and associated costs. Desired delivery to the NAO by November 1st annually. 

https://www.nifc.gov/about-us/our-partners/blm/aviation/administration 

• Reference the NWCG Standards for Airspace Coordination (Chapter 2, Roles and 

Responsibilities) for specific airspace coordination responsibilities.

• Reviews request for UAS projects to ensure agency compliance.

Zone/District Fire Management Officer (FMO): This position is responsible for hosting, staffing, 

supporting, providing daily management and dispatching all BLM fire aircraft assigned to their 

unit. 

• Authorized, through a line officer delegation, to request additional fire aircraft; establish 

priorities; and allocate all fire aircraft assigned to the BLM within their unit or zone.

• Ensure that all BLM Exclusive Use aircraft and affected Airbases assigned to their unit 

are staffed for seven-day coverage throughout the contract period barring adverse 

weather conditions and callback provisions.

• Ensure status of all BLM fire aircraft (On-Call and Exclusive Use) assigned to their unit is 

reported each day to the GACC as either “Committed” or “Available”. Aircraft will not be 

designated as available “local only”. 

• When directed by the state office, will mobilize BLM fire aircraft and assigned personnel 

as requested. 

• Ensure BLM fire aircraft and aircrews are ready for assignments off-unit.

• Ensure that when dispatched off-unit, assigned aircraft managers and aircrew will 

accompany the aircraft to provide appropriate staffing. 

• Delegates or performs the function of the UAM when this position is not assigned. 

Unit Aviation Manager (UAM): Field offices (district/center/zones) must designate a UAM, 

either full time or collateral duty, to provide program oversight at the local level. Some units may 

utilize Service First or similar agreements with interagency partners to fulfill the UAM duties (Unit 

Aviation Officer (UAO) or Forest Aviation Officer (FAO)). The UAM is the principal local aviation 

professional and is responsible for managing and supporting the aviation program for the unit. 

The UAM has functional responsibility in the following areas and should have a delegation of 

authority for each area of responsibility: 
2022 BLM Utah Aviation Plan

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• Ensures district/unit flight compliance with DOI/BLM/state and district policies and 

regulations. 

• Confirms that a qualified flight manager is assigned to all flights as required. 

• Ensures that visiting aircrews, pilots and incident management teams receive a Unit 

aviation briefing. 

• Develops and implements the District/Unit aviation management plan (Interagency 

aviation management plans if applicable), as well as specific operating plans for other 

aviation programs (helitack, SEAT, airbase, and air tactical).

• Ensure the unit aviation plan identifies aviation base(s) maximum aircraft capacity and 

minimum staffing levels to operate safely and efficiently. Shall also include turn down 

protocol.

• May serve as the ACOR or PI on BLM exclusive use aircraft. 

• Interagency Aviation Manager may also function as a COR for USFS contracts.

• Authorized to order approved aircraft utilizing agency procurement documents and 

processes. See NAP 3.8.3 for DOI On-Call and USFS Type 1 and Type 2 helicopter 

CWN and NAP 3.8.4 for DOI Aircraft Rental Agreement. 

• Assists in development, review and briefing the appropriate level of signatory authority for 

PASPs per BLM NAP 4.3.2 

• Ensures that the local dispatch center’s airspace coordination procedures, with the 

military airspace schedulers, are current and that coordination with military airspace 

schedulers is completed for all flights. 

• Identifies unit flight hazards and coordinates the creation and annual updating of flight hazard 

map products (reference Interagency Standards for Fire and Fire Aviation Operations, 

Chapter 16, NSHO Chapter 3). 

• Reviews unit SAFECOM reports and facilitates corrective actions. 

• Ensure units’ Aviation Mishap Response Guide and Checklist is updated in accordance 

with NAP 5.12, and functional.

• Facilitates, tracks unit aviation training, and coordinates with unit training manager and 

SAM.

• Conducts reviews and inspections of aviation facilities, aircrews and field operations.

• Coordinates arrangements for land use agreements/leases of aviation operations 

facilities.

• Ensures Aviation Security Plan is current and implemented. 

• Collects and compiles aviation activity statistics and makes reports.

https://www.nifc.gov/about-us/our-partners/blm/aviation/administration 

• Coordinates with SAM on all Senior Executive Service (SES) flights, and use of 

cooperator aircraft.

• Coordinates with SAM on any aircraft flight service contracting needs.

• Designates an acting UAM when needed. Ensures that acting UAM meets all training 

requirements (reference BLM NAP Appendix 8). 

• Coordinates with SAM on all potential End Product contracts that could conceivably 

utilize aircraft.

• Reference the NWCG Standards for Airspace Coordination (Chapter 2, Roles and 

Responsibilities) for specific responsibilities.

• Reviews request for UAS projects to ensure agency compliance.

• If a Storm Water Prevention Pollution Plan (SWPPP) is in place at their facilities, UAMs 

will ensure that the SWPPP is current and being followed by BLM personnel.

• Ensures that procedures are in place so that in the event of an aviation mishap or 

accident involving aircraft, UAM/SAM is notified in a timely manner. 
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First Line Supervisors of BLM Pilots: Duties for this position are outlined in 350 DM 1 Appendix 3. 

Duties include:

• Maintain aviation supervisory currency in accordance with OPM-4.

• Ensure employee pilots meet training requirements set forth by the Bureau as well as 

those outlined by 351 DM 3 and OPM-22. 

• Ensure employee pilots maintain personal documentation of required training.

• Maintain an employee pilot training file.

• Pilot training records documentation will be submitted to the Alaska SAM for BLM Alaska 

pilots and to the BLM NAO for all other BLM employee pilots by May 15 annually. 

BLM Pilot – Fleet (2101, 2181 position series) & Incidental/Dual Function: The pilot is in 

command of the aircraft and has ultimate responsibility, under both Federal Aviation 

Administration (FAA) and DOI policy, for the safety of the aircraft and personnel onboard. Other 

responsibilities include the following:

• Duties outlined in 350 DM 1 Appendix 3. 

• Meet training requirements set forth by the BLM as well as those outlined by 351 DM 3

and OPM-22. 

• Maintain personal documentation of required training.

• Submit training records documentation to immediate supervisor by May 1 annually.

• Comply with all requirements of 351 DM 3 and any other applicable policy, including pilot 

qualification carding for authorized missions.

• Incidental/Dual Function pilots must have a letter of authorization issued by the BLM state 

office in coordination with the NAO. The letter describes the pilots’ duties and restrictions 

to include any special use requirements (reference 351 DM 3.2C).

• Operates the aircraft in accordance with applicable federal aviation regulations (FAR) and 

DOI/BLM guides, policy and procedures, and within aircraft contract specifications. 

• Develops, activates and closes FAA or agency flight plans.

• Wears and uses personal protective equipment as required (reference Aviation Life 

Support Equipment Handbook (ALSE) and applicable operations Handbooks).

• Conducts mission planning, performs a thorough pre-flight inspection of the aircraft and 

briefs all passengers in accordance to 351 DM 1.5. 

• Does not deviate from flight plan or mission profiles unless agency authorization is 

received or as directed by air traffic control.

• Completes all flight records (OAS-AURM or AMD-23), completes OAS procedures as 

authorized.

• Works with OAS maintenance and helps to arrange for aircraft maintenance as needed.
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2.5.1 BLM Utah Organization

The relationship between the State Aviation Manager and the Unit Aviation Managers is through 

contract management, aviation safety, and program management, and is not supervisory.

The BLM Utah aviation program is managed at two organizational levels within the state, State 

Office, and Districts. The State Office Fire and Aviation (UT-914) is responsible for the statewide 

aviation program. Districts are responsible for aviation activities conducted under BLM 

operational control within the district. BLM Utah has five districts: West Desert, Color Country, 

Canyon Country, Green River, and Paria River. 

The districts are responsible for: 

• Staffing and managing aviation resources and facilities and equipping aviation 

managers/crews. 

• Allocating funds to meet required aviation training (labor, flight time, travel). 

• Allocate funds for non-fire aircraft contracts.

• Developing Project Aviation Safety Plans (PASP) for projects within the districts that 

utilize aircraft. 

BLM Utah State Director (SD): The SD has overall responsibility for the state aviation 

program, which is delegated to the State FMO. Specific responsibilities are listed in the BLM NAP

and 350 DM 1 Appendix 3. 

• Disseminate Departmental and Bureau aviation policy and information. 

• Promote the BLM Aviation Safety Management System (SMS). 

• Assign a liaison for any BLM Utah aviation incident/accident investigation. 

• Ensure adequate aviation management staff and funding in partnership with FA-500. 
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BLM Utah State Fire Management Officer (FMO): The State FMO has the authority to 

prioritize the allocation and pre-positioning of fire aircraft assigned to the BLM within the state. 

Aviation management authorities and responsibilities are described in the delegation of authority 

from the SD. Specific responsibilities are described in the BLM NAP Section 2.5. The State FMO 

may further delegate these responsibilities as necessary. 

• Direct the statewide aviation program.

• Approves assignment of Utah exclusive use aircraft outside of the state, coordinates with the 

NAO.

• Correct unsafe fire suppression, aviation, and fuels management activities. 

BLM Utah State Aviation Manager (SAM): The SAM serves as the focal point for the state 

aviation program by providing operational, technical, and management expertise regarding the 

use of aviation resources. 

The SAM has functional responsibilities in the following areas in addition to those described in 

the BLM NAP 2.5: 

• Conducts or coordinates SMS-based assurance checks of aviation programs and activities 

under BLM Utah operational control. 

• Serves as a member of the Great Basin Aviation Working Committee (GBAWC), 

chartered under the Great Basin Operations Committee.

• Serves as a member of the Aviation Management Group (AMG), chartered under the 

BLM Fire Leadership Team.

• Serves as a Contracting Officer Representative for BLM Utah exclusive use aircraft.

• Coordinate State Office flight requests with the appropriate Dispatch Center. 

• Serves as the statewide point of contact for airspace coordination issues. 

• Coordinates airspace issues with Hill Air Force Base, Clover Control, and UTTR. 

BLM District Manager (DM): The DM has overall responsibility for aviation activities 

conducted within the district under BLM operational control. Aviation management and 

operational authorities and responsibilities are delegated to the District FMO, Unit Aviation 

Manager (UAM), and Dispatch Center Manager.

• See BLM NAP 2.5 and 350 DM 1 Appendix 3 for a list of major duties.

• Approves–Unit Plans, PASPs, and requests for new aviation contracts or programs. 

Field Manager: This position may be responsible for aviation activities supporting non-fire 

projects within the FO if delegated the authority by the District Manager. 

• Review and/or approve requests to use aircraft for resource projects. 

• Review and/or approve PASPs. 

• Coordinate projects using aircraft with the UAM.

• Coordinate aviation training needs of FO personnel as detailed in OAS (Office of 

Aviation Services) Operational Procedures Memorandum (OPM)-04 with the UAM.

District Fire Management Officer (FMO):

This position is responsible for hosting, staffing, supporting, providing daily management, and 

dispatching all BLM aircraft assigned to their unit. The District FMO supervises and delegates the 

aviation program management to the UAM.
2022 BLM Utah Aviation Plan

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District/Zone Unit Aviation Manager (UAM):

The UAM serves as the focal point for the district aviation program. 

• West Desert District - The West Desert District provides a standalone UAM and services 

for West Desert District Office, Salt Lake Field Office, and Fillmore Field Office. 

• Color Country District - The Color Country District provides a standalone UAM and 

services to Color Country District Office, Paria River District Office, Cedar City Field 

Office, St George Field Office, Kanab Field Office, Grand Staircase-Escalante National 

Monument, Richfield Field Office, Hanksville Field Station, and the Arizona Strip 

District.

• Canyon Country District – The Canyon Country District provides a collateral duty UAM 

in conjunction with its Fire Management Officer position and services Canyon Country 

District Office, and the Moab and Monticello Field Offices.

• Green River District - The Green River District provides a collateral duty UAM in 

conjunction with its Fire Management Officer position and services the Green River 

District, and the Price and Vernal Field Offices.

The UAM has functional responsibilities in the following areas: 

• See BLM NAP 2.5 for a list of major duties.

• Serves as the Primary Project Inspector for assigned Exclusive Use contracts.

• Ensures all aircraft ordering and dispatching occurs through the dispatch office. 

• Coordinates with the SAM any requests for exclusive use aircraft contracting and 

performance requirements, contract modifications, extensions, change of start dates, 

request for new Aircraft Rental Agreement (ARA) vendor or aircraft.

2.6 Aviation Positions

Aircrew Members: Personnel (not pilot/passenger) that are required to be on board the aircraft 

to perform an active mission function during a flight to ensure the successful outcome of the 

mission. For public aircraft operations, an aircrew member is also defined as a “qualified noncrewmember” (see definition for qualified non-crewmember below). For position equivalency 

Reference OPM-04 One-Way NWCG Position to IAT Training Position Crosswalk. Aircrew 

Members include, but are not limited to:

• Designated observers - Spotters 

• Personnel conducting surveys or mapping

• Photo/video operators 

• Loadmasters and flight attendants

Aircraft Dispatcher: Dispatch personnel trained in aviation mission operations, policies, and 

procedures who receive process and place orders for aircraft, provide flight following and other 

aviation support services. Duties include:

• Confirms that a BLM Flight Request 9400-1a (or equivalent) is utilized, and completed for 

BLM operationally controlled non-fire flights (point-to-point and mission flights). 

• Provides flight following and coordinates with other agencies on flight following when air 

operations cross jurisdictional boundaries.

• Maintains a current Aviation Mishap Response Guide and Checklist and initiates emergency search-and-rescue procedures for overdue, missing, or downed aircraft. Required 

to test the plan at least annually through a simulation exercise. (See also BLM NAP 5.12)
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• Follows the procedures established in the Geographic and National Mobilization Guides. 

• Utilizes required boundary plan checklist (reference NWCG Standards for Airspace 

Coordination Chapter 7) when dispatching any aircraft into identified dispatch boundary 

zones. 

• Provides appropriate notification to assist in airspace coordination and de-confliction and 

meet any applicable airspace coordination agreements that BLM has with military 

airspace scheduling authorities (FAA, bordering dispatches, and military).

• Authorized to order and/or hire approved aircraft utilizing DOI AQD aircraft contract 

sources for non-fire and fire flights. Cooperator aircraft (USFS, state, and National Guard) 

can be ordered per fire master agreements and Unit Aviation Plan. 

• Reference the NWCG Standards for Airspace Coordination (Chapter 2, Roles and 

Responsibilities) for specific responsibilities.

Airspace Coordinator (ASCO): An Airspace Coordinator may be ordered to assist or assume 

airspace coordination duties. The Airspace Coordinator may be located at a GACC, local unit, 

Area Command, or State Office. Individual must have extensive experience coordinating 

airspace issues. Duties could include airspace deconfliction, Temporary Flight Restriction, 

coordination with DoD and FAA, activating airspace agreements, Pilot briefings and conflict 

resolution. For additional information, consult Chapter 2 “Agency Organizations, Roles and 

Responsibilities and Airspace Committees” of the NWCG Standards for Airspace Coordination. 

An “Agency Specific” Position Taskbook has been created for ASCO. The Taskbook is posted at: 

http://www.nwcg.gov/publications/agency-taskbooks

Aircraft Manager: Aircraft managers supervise tactical aircraft operations. Each manager 

complies with appropriate Interagency Operations Guide, Redbook and is responsible for the 

following:

• Plans, coordinates, and supervises aircraft operations according to DOI/BLM policy. 

• Directs pilots and crews, and provides operational and safety briefings to aircrews, 

project leaders, and passengers. 

• Conducts and completes flight time reports, daily diaries, and all related documentation.

• Conducts mission planning and risk/hazard analysis with the pilot.

Flight Manager: A flight manager will be designated for point-to-point flights transporting 

personnel. The flight manager is a government employee (which may be the pilot) that is 

responsible for coordinating, managing, and supervising flight operations. The flight manager is not 

required to be on board for most flights, however for complex multi segment flights a flight manager 

is recommended to attend the entire flight. The flight manager will meet the qualification standard 

for the level of mission assigned as set forth in the Interagency Aviation Training (IAT) Guide. 

• Reference National Interagency Mobilization Guide Chapter 20 for specific 

responsibilities.

• Non-fire Special Use fixed wing missions (as defined by OPM-29) require oversight by a 

Fixed Wing Flight Manager-Special Use.

A helicopter flight manager is utilized to supervise missions limited to point-to-point transport of 

personnel from one helibase/airport to another helibase/airport, low- and high-level 

reconnaissance, and landings or takeoffs at unimproved sites; the helicopter flight managerresource is not expected to fulfill all the duties of a qualified non-fire helicopter manager. Rather, 

he/she is the government representative who coordinates with the pilot regarding the safety and 

efficiency of the flight.
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Helicopter Manager – Resource: Responsible for coordinating, scheduling, managing and 

supervising non-fire resource helicopter operations. Training Requirements involve the 

completion of the task book and meeting the training requirements in OPM-04. 

Fire Helicopter Manager: A Single Resource Boss (HMGB) is responsible for supervising and 

directing a fire suppression module. Training Requirements HMGB. 

Vendor Pilot: All vendor pilots must conform to the procurement document requirements they 

are operating under. 

2.6.1 Aviation Positions 

Passengers: Any person aboard an aircraft who does not perform the function of an aircrew 

member or pilot is a passenger. 

Contracting Officers Representative/Project Inspector: Each aircraft contract has a 

Contracting Officers Representative (COR) designated by the Contracting Officer (CO). The 

COR for BLM Utah exclusive use contracts is the SAM. The COR duties for DOI On-Call 

contracts are performed by DOI-AQD. CORs designate Alternate CORs or Project Inspectors (PI) 

to assist in the day-to-day administration of the contract.
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3.0 Administrative Requirements 

3.1 General

This section establishes: definitions, management responsibilities, policies, and procedures for 

administration of the aviation program in BLM. 

New program requests involving aerial assets, not already approved by established Bureau or 

Departmental policy, must be routed through the State Director to the Division Chief Aviation for 

approval. (See NAP 3.23)

3.2 Reporting and 2021 National Aviation Plan Documentation Requirements

General administration policy for BLM Aviation is found in 350 DM 1. 

• The approval and documentation of Senior Executive travel in agency and agency 

procured aircraft is as required by OMB Circular A-126. States shall forward biannual 

reports (April and October) to the NAO, who will forward to OAS. 

• Documentation requirements for aviation activities shall follow requirements in 

BLM Manual 1220 Records and Information Management Appendix 2, Combined Records 

Schedules, Schedule 10/8 and 9. 

• Each office will maintain an aviation reference library and aviation files (these may be 

paper copies and/or electronic documents) per BLM Preparedness Review Checklist #10 

“Aviation Management” located at: BLM Preparedness Review Checklists

• Documents must be retained for at least three years. The designated aviation manager at 

the unit, state and national levels must be responsible for maintaining and updating all 

aviation related references, files and records.

3.2.1 Reporting and Documentation Requirements 

General administration policy for BLM Aviation is found in 350 DM 1 and BLM NAP 3.2.

• Aviation Safety Communiqué (SAFECOM) reports will be submitted within 24 hours of any 

event.

• Accidents and Incidents-With-Potential will be reported to (1) OAS Safety 

(1-888-4MISHAP), (2) SAM/State FMO/SD. For accident notification (see NAP 4.5).

• Contract Daily Diary and aircraft payment documents will be maintained by contract Field 

Project Inspectors for each exclusive use contract. Copies of these documents will be 

forwarded to the SAM every 2 weeks. Significant contract performance events are to be 

documented and forwarded to the SAM immediately. Contract related documents are to be 

maintained for 6 years and 3 months after the final payment for the fiscal year.

3.3 Aviation Plans: National, State, Unit, and Project

BLM Manual 9400, Aviation Management specifies national aviation management policy. The 

national, state and district/field offices aviation plans describe procedures that implement policy 

direction in the 9400 manual. State and unit plans supplement national policies and procedures. 

State and field offices must not implement policy or procedures less restrictive than national 

policy. If a state or unit plan must contain more restrictive procedure, a written request, prior to 

implementation, is to be sent to the NAO. 

National Aviation Plan (NAP): The BLM NAP provides comprehensive information regarding 

BLM aviation organization, responsibilities, administrative procedures, and policy. The BLM NAP 
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is intended to serve as an umbrella document that state aviation plans can follow for formatting 

and describe procedures applicable to the organizational level. The BLM NAP will be updated 

and issued annually prior to March 1 by the NAO. The NAP is approved by the Assistant Director 

of the BLM Fire and Aviation Directorate (FA-100).

NIFC Ramp Services Operation Plan: The Ramp Services Operation Plan defines the mission, 

provides checklists, orientation outlines and instruction for employees and contractors and 

standardizes operating procedures at NIFC Ramp Services.

State Aviation Plans: Each state must publish an aviation plan that implements national policy 

and describes protocols specific to each state’s aviation program. The State Aviation Plan serves 

as an umbrella document for Unit Aviation Plans. However, the State Aviation Plan may also be 

designed to serve as an overall Unit Aviation Plan provided that the local unit administrative and 

operational procedures are incorporated along with the aircraft supplemental plans that are 

specific to each unit aviation program (see identified procedures listed under Unit Aviation 

Plans). State Aviation Plans are approved by the State Director. State Aviation Plans shall be 

updated annually and submitted to the NAO for inclusion to the BLM Aviation web site: 

https://www.nifc.gov/about-us/our-partners/blm/aviation/library 

Unit Aviation Plans: Units (districts/field offices/zones) are required to maintain and update Unit 

Aviation Plans annually, which implement national and state policy and establish local 

procedures and protocol. Unit Aviation Plans are approved by the District/Field Office Manager. 

Unit Aviation Plans must address local administrative and operational procedures to include: 

• Unit/state organizations

• Aviation facilities

• Radio use

• Repeater locations 

• Phone and computer use

• Airspace coordination to include boundary zone deconfliction (reference 

NWCG Standards for Airspace Coordination Chapter 7) 

• Flight hazards

• Aircraft ordering

• Dispatching and flight following procedures

• Administrative procedures

• Identification of typical aviation missions

• Risk assessment and mitigation specific to the Unit or not addressed in State/National 

Aviation Plan (reference BLM NAP 4.4)

• Unit Aviation Plan, Supplemental Operational Plans or Project Aviation Safety Plans must

address recurring aircraft operations. Examples include:

o Airbase operations 

o Helitack operations 

o Smokejumper operations 

o Airtanker operations

o Aerial Supervision.

o Light Fixed Wing (Fire Detection and Recon, Logistical, etc.).

o WH&B

o ACETA

o Law Enforcement operations

o Non-Fire Aviation Activities
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Project Aviation Safety Plans (PASP): A PASP will be developed and approved at appropriate 

levels depending on project/flight complexity and risk as required for specific non-fire 

flights/projects (reference BLM NAP 4.3.2 for specific PASP requirements).

3.3.1 Aviation Plans: State and Local Unit 

The BLM Manual 9400, Aviation Management specifies national aviation management policy. 

The national, state, and unit aviation plans describe procedures that implement policy direction in 

the BLM Manual 9400. State and unit plans supplement national policies and procedures. State 

and district offices must not implement policy or procedures less restrictive than BLM national 

aviation policy. If a more restrictive procedure is required, a written request from the State 

Aviation Manager is to be sent to the BLM National Aviation Office (FA-500). 

State Aviation Plan (SAP): The SAP serves as an umbrella document for unit aviation plans. 

The State Plan will be updated annually 30 days after issuance of the BLM NAP or before March 

1. It will be issued, at the state level, by Instruction Memorandum (IM), and then submitted to the 

NAO for inclusion on the BLM Aviation website. The BLM Utah State Aviation Plan will be 

disseminated to the field in electronic format.

BLM Utah Unmanned Aircraft Systems Supplement: BLM Utah has developed an Unmanned 

Aircraft Systems Supplement that is incorporated as the supplemental policy for BLM Utah. The 

supplement will serve as the Project Aviation Safety Plan (PASP) for BLM Utah in combination 

with the BLM Utah UAS Mission Plan (Flight by Notification) for routine low complexity UAS 

operations conducted under 14 CFR Part 107. 

BLM Utah Law Enforcement Aviation Supplement: BLM Utah has developed a Law 

Enforcement Aviation Supplement that is incorporated as a supplemental policy for BLM Utah. 

The supplement serves as a reference for required aviation training and planning tools for BLM 

Law Enforcement personnel within Utah. 

Unit Aviation Plans: Each BLM Utah District will develop a Unit Aviation Plan. Unit Aviation 

Plans describe the District aviation management procedures and organization. The plans are to be 

updated annually within 30 days of BLM Utah State Aviation Plan issuance or prior to April 1. A 

copy of these plans will be forwarded to the SAM when approved. Utah Unit Aviation Plans must 

be in this tiered format, with the NAP and SAP included. 

3.4 Aircrew Orientation Briefing Package 

Each state and unit will create an Aircrew/Pilot Orientation Briefing Package. Ultimately, the 

format of this package will be standardized throughout the states. Unit Aviation Managers are 

responsible for providing visiting pilots, aircrews and Incident Management Teams with a 

briefing. The orientation briefing package serves as a source of information about local 

administrative and operational procedures (copy of the unit aviation plan, frequency sheets,

repeater locations, flight following procedures, hazard map, known landing zones, recommended 

lodging/dining list, maps, etc.).

3.4.1 Aircrew Orientation Briefing Package 

The SAM will distribute the Great Basin Interagency Aviation Orientation Guide to which the 

districts should attach pertinent information about their district/area. Unit Aviation Managers are 
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responsible for ensuring that visiting pilots, aircrews, and Incident Management Teams are 

provided a briefing. The briefing package serves as a source of information about local 

administrative and operational procedures (copy of the unit aviation plan, frequency sheets, 

hazard map, fire behavior information, recommended lodging/dining list, maps, etc.). 

3.5 Land Use Policy for Aviation Activities 

The regulation of aviation activities on or above BLM managed lands is typically dependent on 

resource management plan (RMP) direction, wilderness management regulations and any 

applicable federal aviation regulations. 

Temporary aviation operations on BLM lands may be restricted due to RMP direction. UAMs 

should coordinate with resource managers to identify areas of restriction when developing 

district/field office operating plans, Unit Aviation Plan, and PASP. For information regarding 

implementing invasive species control measures for aviation activities reference BLM NAP 5.14. 

For information regarding aerial application of fire chemicals, refer to Chapter 12 of the Red 

Book, additionally, the local resource advisor is the focal point for coordinating the reporting of 

any fire chemical aerial application in or near waterways.

3.5.1 Land Use Policy for Aviation Activities 

Regulation of aviation activities on BLM land is described in resource management plans and 

wilderness management plans. The BLM aviation managers serve as technical advisors only to 

the State Director, District Manager, or Field Office Manager. Requests by private or other 

governmental entities to conduct aviation activities are addressed by the various land use 

management plans. When these permitted activities either involve or may involve aviation assets, 

the Unit Aviation Manager will be notified by the office issuing the permit. 

3.5.1.1 Temporary Aviation Operations 

Those operations under BLM operational control and supporting BLM fire or resource 

management operations on BLM land should be coordinated with the local resource advisor. Any 

restrictions should be identified in a PASP or District Aviation Plan.

3.6 Budget

BLM Fire exclusive use contract fire aircraft daily availability is budgeted by the NAO (FA-500). 

All exclusive use availability guarantees and fixed government ownership costs for fire aircraft 

are held at the NAO.

Non-Fire exclusive use contract and fleet aircraft are budgeted outside the NAO through a 

variety of sources.

3.7 Aircraft Flight Service Ordering

Only flights with a scheduled air carrier on a seat fare basis and with payment utilizing their 

federal government credit card are initiated by individual BLM employees. Aircraft acquisition and 

procurement for all other flights are approved to be arranged only by IBC (AQD), (Exceptions - 

353 DM 1.2.A & OPM-15). These flights are scheduled, managed, and arranged by qualified 

aviation and dispatch personnel in their respective BLM offices (see also BLM NAP 3.17.1) and 

approved at the appropriate management level (reference state and unit aviation plans).
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Aviation services under DOI contract or rental agreement are paid through the IBC. Contractors are 

responsible for final submission for payment, through the processes defined by IBC. Assigned 

Flight/Aircraft Managers are responsible for input/review and signature of the AMD-23E. COTRs and 

CORs are designated by the CO to monitor aviation services contract performance and technical 

provisions of the contract.

When ordering aircraft, no modification of contract requirements are authorized, except by the CO.

Ratification of Unauthorized Commitments: Unauthorized commitments (orders with 

vendors without a current and valid DOI ARA or On-Call contract, or commitments on 

contracts that are not funded by a task order) could be subject to the ratification 

procedures set forth in the Federal Acquisition Regulation 48 CFR 1.602-3 (reference 

353 DM 1.8).

On-Call contracts and ARAs have specific ordering procedures. The procedures are found on the 

OAS web site: https://www.doi.gov/aviation/aqd/contracts

An ordering official is a person who places an order directly with a Contractor. They must have 

the knowledge to conduct and document a cost comparison/ Contractor selection rationale. For 

BLM, the only personnel that have Bureau authorization to order aircraft are qualified aircraft 

dispatchers, UAMs and SAMs.

Orders for service shall be placed with the Contractor who is determined to represent the best 

value to the Government, using tradeoff analysis. In selecting an aircraft, the ordering official 

must evaluate Contractors by trading-off the differences in capability and price. If one Contractor

has both the better capability and the overall lower price, then that Contractor will be the best 

value. If one Contractor has the better capability and the higher price, the ordering official will 

decide whether the difference in capability is worth the difference in price. If the ordering official

considers the better capability to be worth the higher price, then the more capable, higher priced 

Contractor will represent the ultimate best value to the Government.

When selecting a Contractor with the better capability but a higher price, the ordering official 

must provide a short explanation to support this decision on the cost comparison. 

Criteria evaluated are:

• Aircraft or contractor capability. 

• Price (flight time, guarantees, mobilization, per diem, service truck mileage)

• Availability of the contractor to meet time frames.

Once the selection is made, it is the Bureau personnel’s responsibility to ensure the aircraft and 

pilot offered by the vendor are approved for the mission.

Procedures for placing orders against the DOI On-Call/ARA for all “Non-Fire” and “NonEmergency” aircraft services: The ordering unit shall complete a DOI Flight Services Request 

Form (AQD-91) for all flights and submit the completed form to: aqd91@ibc.doi.gov

If utilizing the ARA and your estimate exceeds $150,000.00, contact your OAS Flight 

Coordination Center or the Contracting Officer.

 

The ordering official shall document the vendor price analysis on the second tab of the Flight 

Services Request Form (AQD-91). Selection of three sources within the local area to compare 

best value criteria will meet this competition requirement. When selecting a Vendor with the 
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better capability but a higher price, the ordering official shall place a short explanation to support 

this decision on the AQD-91. (Reference BLM NAP 3.2 for documentation retention) 

3.7.0.1 Aircraft Flight Service Ordering

Only the SAM, UAMs, and Aircraft Dispatchers are authorized to order aircraft from the various 

DOI flight service contracts. Individual Project Coordinators must not order aircraft direct from 

DOI contractors. Orders for service cannot change or waive any requirement in the contract. Only 

the Contracting Officer may change the contract through a contract modification

3.7.1 Inter-Agency Agreements (IAA)

DOI AQD Contract/ARA aviation services procured by BLM can be funded via an Interagency 

Agreement with AQD. This will require a substantial amount of lead time for non-fire aviation 

services to ensure the agreements for funding are in place before any flight activity takes place.

The Ordering Official of the aircraft must ensure that an Interagency Agreement (IAA) has been 

completed by their agency and accepted by DOI prior to placing an order against the contract. 

That document will identify the amount, purpose, period of performance and source of the 

funding.

DOI AQD Contract/ARA Aviation Services Acquired in Support of Non-Fire Activities:

Aviation users must work with local UAM to assure non-fire aviation services are ordered in 

accordance with State/District protocols to include:

• Identifying the need for a non-fire flight. 

• Completing an AQD-91 Flight Services Request Form / Best Value Comparison to 

identify a particular aircraft and associated cost. 

• Completing a PR request with appropriate funding from benefiting activity. 

• Creating a new IAA or modifying an existing IAA as needed and referencing the existing 

IAA on the AQD-91. 

BLM Exclusive Use contract aircraft can perform BLM non-fire project work without the need to 

create an AQD-91 specific to that aircraft and mission. If no AQD-91 exists, the Aircraft Manager 

would just include the appropriate charge code for the BLM non-fire costs on their normal 

payment document and the benefiting activity will be expensed. If an AQD-91 has already been 

created and the Unit wishes to utilize those dollars already obligated on the AQD-91 then the 

Aircraft Manager will need to submit a separate payment document specific to just that project 

that references the Task Order created for the AQD-91. If this process does not occur, the unit 

could in effect be double billed if the Unit does not de-obligate the AQD-91 prior to year-end

fiscal blackout. 

DOI Contract/ARA Aircraft Services Acquired in Support of Fire Management Activities:

The Department has provided direction to create miscellaneous obligations for inter-agency 

agreements with AQD. These obligation numbers will be disseminated by the National Aviation 

Office each fiscal year after the agreements for fire exclusive use availability and BLM fire 

management activities are executed. 

• A National IAA is established for BLM fire management activities (suppression, severity, 

prescribed fuels, emergency stabilization, burned area rehabilitation, preparedness, and 

any other federal emergency response).

• A separate National IAA is established for BLM fire exclusive use aircraft availability and 

BLM NAO Fleet aircraft (N190PE, N49SJ, N618, N162GC, and N700FW) monthly rate. 
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3.7.2 Cross Servicing with AQD for Contract/ARA Aviation Services Acquired in Support 

of Non-Fire Activities: Cross Servicing functionality in the Financial and Business Management 

System (FBMS) affords Bureaus 100% financial transparency of funding from requisition to 

award by eliminating the need for Interagency Agreements as well as the burden of managing

the Intra-Governmental Payment and Collections (IPAC's). The functionality allows requesting 

Bureaus to create requisitions in their business area of the Systems, Applications, and Products 

data processing software (SAP) that flow directly to AQD's area of Procurement Information 

System for Management (PRISM) for award. When awards are released in PRISM the obligation 

flows directly to the requesting Bureaus business area of SAP. Aviation users must work with 

local UAM to assure Non-Fire aviation services are ordered in accordance with State/District 

protocols to include:

• Identifying the need for a non-fire flight. 

• Completing an AQD-91 Flight Services Request Form / Best Value Comparison to 

identify a particular aircraft and associated cost. 

• Create a PR with the appropriate funding from benefiting activity. 

o The PR must be completed in accordance with the cross-servicing instructions 

provided by AQD.

• Document the PR number in the block provided on the AQD-91. 

3.7.2 .1 Cross Servicing with AQD for Contract/ARA Aviation Services Acquired in 

Support of Non-Fire Activity

BLM Utah will utilize cross-servicing for all non-fire aviation services acquired under DOI’s OnCall Contracts and Aircraft Rental Agreements. 

3.8 Aircraft Contracts

Aircraft flight services in excess of $150,000 require an Exclusive Use aircraft contract or the use 

of: DOI On-Call or USFS Call When Needed (CWN) contract to include competitive task orders 

when deemed appropriate. Short term projects (< $ 150,000) may utilize the DOI Aircraft Rental 

Agreement (ARA) or the On-Call contract. 

The DOI On-Call and USFS CWN contracts are competitive bid contracts that do not have a 

$150,000 limit like the ARA.

3.8.0.1 Aircraft Contracts 

The Unit Aviation Manager (UAM) will decide which type of contract is to be used. 

3.8.1 Non-Fire Exclusive Use Aircraft Contract Process

• State, field, and district offices are required to submit a “Request for Contract Services” 

Form (AQD-13) to the SAM for all potential or desired contracted flight services. The SAM 

will review and approve/disapprove all AQD-13’s. The SAM will work with the appropriate 

AQD Contracting Officer (CO) and NAO personnel to provide coordination, technical 

input, solicitation review, and decision making for each contract award.

• A “Pre-Validation of Funds for Contract Award/Renewal” Form (AQD-16) will be 

authorized by an appropriate budget officer prior to awarding or renewing Non-Fire 

aircraft contracts. 

• The SAM will provide the NAO program manager with a copy of any AQD-13, AQD-16, 

“Notice to Proceed” (AQD-19), Request for Amendment/Modification and/or Request for 
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Contract Extension for any Non-Fire Exclusive Use aviation contract at the same time the 

original request is forwarded to the AQD CO. 

3.8.2 Fire Exclusive Use Aircraft Contract Process

• Any changes in aircraft type or capability that would significantly increase fixed costs 

must be supported and approved by the Assistant Director of the BLM Fire and Aviation 

Directorate (FA-100).

• The appropriate NAO program manager completes Form AQD-13 in coordination with the 

SAM for approval of all requested exclusive use aircraft. The NAO program manager will 

review all AQD-13’s and work with the appropriate contracting officer in providing 

coordination, technical input, solicitation review, and decision making for each contract 

award.

• SAM will provide the NAO program manager with a copy of any AQD-19 and/or Request 

for Amendment/Modification for any Exclusive Use aviation contract at the same time the 

original request is forwarded to the AQD CO.

• All AQD-16’s will be authorized by the NAO prior to awarding, renewing, or extending fire 

aircraft contracts.

Changing the Contract Start Date: The aircraft start dates can be changed to accommodate

the government work or training schedules. If the start date is altered from that shown on the 

original AQD-16, the COR will notify the Deputy Division Chief, Aviation (FA-500). The start date 

of the exclusive use period may be adjusted up to 14 days prior to, or 14 days after the normal 

start date (as stated in the aircraft contract). The start date is established by a Notice to Proceed 

Form (AQD-19) issued by the COR. Adjusting the start date does not alter the length of the use 

period. 

Funding through the following code: LLFA540000 LF1000000.HT0000 begins on the new start 

date and is available continuously for the total number of exclusive use days (excluding contract 

extension) specified in the contract. 

Contract Extension: Mutual Extension - The exclusive use period may be extended on a dayby-day basis after the Mandatory Availability Period (MAP), provided that such extension is 

agreeable to both parties in writing prior to the extension. An extension on the use period creates 

use “outside” of the normal exclusive use period and requires early planning, coordination, and a 

contract modification by the CO. It also requires a dedicated funding source approved by the 

NAO. Extensions are not guaranteed; they require written mutual agreement (contract 

modification). They are normally used when additional work is anticipated, and other funding 

sources are available. Funding for extensions may be through BLM (i.e. suppression, severity, 

rehab, non-fire, etc.) or from another agency which requires a reimbursable agreement to be in 

place. 

• Funding from LLFA540000 LF1000000.HT0000 is limited to the number of days specified 

in the contract and is not to be utilized during contract extension. 

• Use Rates for Pay Item Codes (FT, SM, PD, EP, ET, SC, etc.) - All Use Rates will be 

charged to the appropriate office and benefiting activity, but not to the NAO code.

• SAM will make a request for any Exclusive Use contract extension a minimum of two 

weeks prior to end of exclusive use period to the Deputy Division Chief, Aviation. 

• Contract extension on Severity Funding must be requested by the State and approved by 

the National Office through the standard severity request process.

3.8.2.1 Fire Exclusive Use Aircraft Contracts 

• The SAM serves as the Contracting Officers Representative (COR) for all BLM Utah 

exclusive use aviation contracts.
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• At the SAM discretion, Alternate COR designations may be requested in writing from the 

AQD Contract Officers.

• If a District wants to change the type or capability of their hosted exclusive use contract 

aircraft, a request is required to be submitted to the State FMO. Upon concurrence, the State 

FMO will submit a request to Deputy Assistant Director, FA-100. 

• If an existing contract expires, the host District will coordinate with the SAM and NAO and 

submit a new AQD-13. 

• Start dates: The Districts determine the start dates for their exclusive use contracts. The COR 

will coordinate with the State AFMO, State FMO, host unit FMO and UAM, NAO, OAS 

Western Region, and AQD/Acquisition Services Directorate Contracting Officer. 

• The COR submits a Notice to Proceed AQD-19 to the contractor a minimum of 20 days prior 

to the operational start date. The start date can be varied on either side of the contract's 

published start date by 14 days.

• Contract extension: The contract exclusive use period can be extended on a day-by-day basis. 

Extensions must be agreeable by the BLM and the contractor. Funding of the extension can be 

done through severity, suppression, fire rehab, project, or another agency with an exchange of 

funds agreement with BLM. Contract extension on national severity funding must be 

requested by the District and approved by the National Office through the standard BLM 

severity request process. 

• A request to extend the contract is sent by the District through the COR to the NAO no later 

than 2 weeks before the exclusive use period termination. 

3.8.3 On-Call/Call When Needed (CWN) Aircraft Contracts

AQD administers the DOI On-Call aircraft contracts and the USFS administers the Type 1 and 

Type 2 Helicopter CWN contract. Authorized BLM personnel (check procurement on who is 

authorized to order) can hire aircraft using these contracts through the Interagency Resource 

Ordering Capability (IROC) as described in the contracts and the National/Geographic Area 

Mobilization Guides. Funding for these aircraft is made through specific incident emergency fire 

suppression, approved severity funding or approved non-fire activity funding. The emergency fire 

suppression funding is only available until the specific incident is controlled/out. Resource 

ordering procedures are described in the Geographic Mobilization Guide. The types of DOI OnCall and USFS CWN aircraft contracts available to BLM are:

DOI On-Call Contracts: Reference AQD web site for contract details and ordering procedures:

https://www.doi.gov/aviation/aqd

There are separate contracts for:

• Small helicopters (ICS Type 3) – 4 to 6 seat helicopters.

• Used for Fire Operations and Resource Management Projects.

• DOI On-Call C27.2.2 NON-FIRE and ONE-DAY FIRE missions can be hired on a 

daily availability and fixed flight rate basis or a project flight rate basis. Orders 

placed and accepted on the basis of payment for daily availability and the fixed 

flight rate will be subject to contract clause C27.

• Reference DOI On-Call C26.2.1“........requires a government representative to 

submit an AQD-91 Flight Request Form with a government estimate to include 

three contractors......”

• SEAT – Fire suppression.

• Air Tactical Fixed Wing – Fire Suppression or Non-fire missions. 

• On Call Wild Horse & Burro and ACETA – Inventory/Census, Herding, 

Marking/Eradication/High Velocity Darting, Net-Gunning/Low Velocity Darting, Wild Horse 
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and Burro (WH&B) herding and capture. Census and classification may be accomplished 

under the DOI On-Call Small Helicopter Contract.

• UAS

• Fire: Reconnaissance, mapping, and situational awareness.

• Non-Fire: Resource management projects.

USFS CWN Aircraft Contracts: Reference USFS web site for contract details and ordering 

procedures: http://www.fs.fed.us/fire/contracting/helicopters_cwn/helicopters_cwn.htm

There are separate contracts for:

• USFS National Type 1 and 2 Helicopter CWN contract - Medium to heavy lift helicopters. 

Project flight rates apply for non-fire projects. 

• USFS Regional Type 3 Helicopter CWN contracts – Light, multi-purpose helicopters. 

• USFS Exclusive Use and CWN contracted aircraft are available for DOI use per 

requirements of OPM-39. 

• 3.8.3.1 On-Call/Call-When Needed (CWN) Aircraft Contracts

• The DOI –OAS & AQD administers the On-Call Contracts that provide aircraft for Small 

Helicopters, Aerial Supervision, SEAT, Aerial Capture, Eradication and Tagging of 

Animals, and Wild Horse and Burro Operations. The use of the DOI On-Call Contracts is 

prioritized over the use of the USFS CWN contracts; however, BLM can use USFS 

contracted aircraft per compliance with procedures described in the OPM-39. For non-fire 

suppression projects, an Interagency Agreement (IAA) is required to be in place with the 

US Forest Service unit providing the aircraft. OPM-39 describes several tests that must be 

met before USFS contract aircraft can be used in place of DOI-AQD contracted aircraft.

•

• Forest Service National Type 1 and 2 CWN Helicopter Contract

• The USFS CWN contract for Types 1 and 2 helicopters is available for use by BLM. See 

the National and Great Basin Mobilization Guide for specific ordering procedures. 

Aircraft hired by BLM for a BLM operational controlled project or fire incident is to use 

the Department of Interior AQD (DOI AQD) Task Order system and flight invoicing 

system (AMD-23e). For fire suppression, helicopters will be ordered through normal 

dispatch processes and NICC (National Interagency Coordination Center) will complete 

and process the OAS-91 Order Request Form / Best Value Comparison. The DOI Fire 

Suppression Task Order #, valid for the individual vendor will be documented on the 

AMD-23e Flight Use Invoice in the contract # block. The Task Order # should be noted 

on the IROC order. 

• For project use, local units include at least three vendors or provide a reason that less than 

three were evaluated. The local unit can contact the preferred vendor and coordinate needs 

with them. The local unit must ensure that the helicopter and vendor personnel are carded 

for the anticipated missions. DOI AQD is authorized to place Task Orders directly with 

the contractor in accordance with the terms and conditions of the CWN Contract to 

support non-suppression activities (projects). These orders will be placed by the DOI 

AQD Contract Officer and coordinated with the National Interagency Coordination Center 
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(NICC) when the resource order is placed with the contractor. DOI AQD will provide 

copies of the Task Order to the vendor and local unit. 

3.8.4 DOI Aircraft Rental Agreements, Non-Fire – (ARA)

ARA for helicopters in the L-48 has been combined with the DOI On-Call Small Helicopter 

contract. The ARA must NOT be utilized to obtain direct fire suppression aircraft and tactical fire 

support aircraft. Non-tactical operations that an ARA aircraft may be used for include fire 

monitoring, fire detection, personnel or cargo transportation (non-Initial attack), etc. The ARA is 

used to procure flight services requested under a blanket purchase agreement (BPA) and are 

acquired under the authority of Federal Acquisition Regulations (FAR), Part 13, and BPA. These 

are not competitive contracts, thus have limitations of $150,000 total expenditure per ordered 

project. Project requirements of more than $150,000 must not be separated into several 

transactions to avoid expenditure limits. The OAS Regional Offices administer the ARA program 

through the Flight Coordination Centers. The AQD web site has a link to the Aircraft and Pilot 

Source List: https://www.doi.gov/aviation/aqd/aviation_resources

Resources are in a database that is searchable by: vendor, type of aircraft, special use 

qualification. Helicopters are ordered, depending on project needs, from the DOI On-Call 

contracts: Small Helicopter, or the ACETA. The airplanes available on the ARA Source List 

typically do not have the same level of avionics that On-Call contracted planes have. Most ARA 

aircraft have a minimum flight hour daily guarantee. 

The numbers of approved rental aircraft must be consistent with program objectives. Requests 

from the field to add new vendors must be carefully reviewed at the state and national level. All 

“Request for Rental Services” (AQD-20) will be reviewed and submitted by the SAM to the NAO. 

The appropriate NAO program manager (fixed wing, helicopter) will review the request and, if 

approved, forward to the OAS for processing. Some criteria for assessing need for additional 

rental aircraft are:

• Type of aircraft. 

• The number of same type of aircraft available locally to the field offices. 

• The estimated annual usage of that type of aircraft. 

• Special services/equipment provided by the contractor.

3.8.4.1 DOI Aircraft Rental Agreement (ARA)

Most DOI ARA aircraft are qualified only for point-to-point flights. Check the Resource Lists on 

the OAS website to determine aircraft qualifications. ARA aircraft cannot be used for tactical fire 

suppression missions but can be used for logistical support, fire monitoring, and detection. For 

fire monitoring, detection, or non-point-to-point resource management types of missions the 

aircraft will need to be equipped with an FM radio and AFF (automated flight following). When 

ARA aircraft are hired for fire support, they can be hired under the BLM National Aviation Office 

Interagency Agreement for Fire Suppression – IAA # 4500151599 that allows for immediate 

hiring using the Fire Suppression Task Order number issued pre-season to the vendor. ARA 

aircraft for non-fire missions can be hired using cross-servicing. 

3.8.5 Contractor Evaluations

In accordance with Federal Acquisition Regulation 42.1502, past performance evaluations shall 

be prepared at least annually and at the time the work under a contract or order is completed.

The AQD-136A Form Evaluation Report on Contractor Performance (Exclusive Use, On-Call, 

CWN and ARA) is used for documenting contractor performance for aviation services performed 

in support of DOI customers. 
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The CO will register each contract by submitting the contract information to the agency’s CPARs 

office. For both exclusive use and on-call contracts, the Project Inspector (PI)/Flight Manager is 

responsible for completing the contractor evaluation form. The evaluations for the exclusive use 

contracts will be forwarded to the Contracting Officer Representative (COR) for review and entry 

into the CPARs system. 

On-Call includes Small Helicopters, Air Attack, SEAT, UAS and ACETA. The on-call contract 

evaluations shall be forwarded to the SAM. The SAM will review and forward the on-call 

evaluations to the respective Contracting Officer for entry into CPARs.

National Call When Needed (CWN) USFS Type1 and Type 2 helicopter contract. The 

PI/Helicopter Manager shall complete the USFS Contractor Performance Assessment Report 

and submit to the USFS CWN Contracting Officer with a courtesy copy to the SAM. 

The CO will review and submit the evaluation to the Contractor for their review and signature.

The contractor has 30 days to either accept the rating or provide comments. After agreement of 

both parties, the evaluation becomes an official past performance record which may be used in 

future source selections.

The PI / Flight Manager should discuss the evaluation with the contractor’s representative before 

submission. If during the performance of a contract there are negative performance issues, the 

PI should attempt to resolve issues with the contractor’s representative and inform the UAM and 

COR of issues. If any issues cannot be resolved locally, then the COR will facilitate contacting 

the contractor and/or the CO.

3.8.5.1 Contractor Evaluations 

The AQD-136A Form is to be used for the contractor performance evaluation. The completed 

form is to be routed to the SAM, who will route a copy to the appropriate DOI AQD Contracting 

Officer. Evaluations are required: 

• CPARS Compatible Contractor Evaluations will be completed each time an aircraft is hired 

from the ARA, On-Call, or CWN Contract. After the release of the aircraft, the aircraft 

manager will complete and send it to the CO with a copy to the SAM. 

• Exclusive Use Contracts- End of season performance evaluations will be completed by the 

aircraft manager and submitted to the SAM (COR) for input into the CPARS database. 

3.8.6 Contractor Fueling-Lower 48

DOI / BLM aviation contracts in the lower 48 states require the aircraft contractor to provide fuel 

for government contracted aviation operations regardless of the location. SEAT and helicopter 

contracts require the vendor to have a fuel truck in addition to the aircraft. Aircraft contractors are 

obligated to provide fuel for their own contracted aircraft and the fuel support vehicles. The 

aircraft contractors have the discretion to purchase aircraft fuel from commercial sources on 

site/airport or provide their own fuel for the contracted aircraft. FAA specifically addresses what 

aircraft owners and associate businesses are permitted to do specific to fueling operations. 

The FAA’s Airport Compliance Manual - Order 5190.6B 11.2. Restrictions on Selfservicing Aircraft. Grant Assurance 22(f), Economic Nondiscrimination, clearly indicates 

that an aircraft owner or operator may perform their own self-fueling activities, including 

bringing fuel to the airport with its own employees in conformance with the airports rules 

and regulations pertaining to self-service operations. 
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BLM personnel will not direct the contractor on where or how to acquire aviation fuel. Local 

aviation managers should be familiar with their local airport authority’s rules governing selffueling and any fuel flowage fees that apply to BLM operations. Local Aircrew Orientation 

Briefings will address the airport’s schedule of fees that may be applicable to their BLM flight 

operations. At a minimum the briefing shall address the following:

• Airport fees such as landing fees, tie down fees and or fuel flowage fees.

• Identify who the contractor is responsible for paying on site / airport. Point of contact with 

the airport authority.

• Fees applicable to BLM operations may be paid for by the BLM unit or through the aircraft 

contract. In instances where the contractor is responsible, units should refer to the 

aviation contract or the contracting officer for specific information on miscellaneous fees 

that are permitted for reimbursement. 

Contractors involved with aircraft fueling are held to NFPA 407-Standard for Aircraft Fuel 

Servicing or as otherwise directed by the governing contract. 

3.9 End Product Contracts

End Product Contracts are not aircraft flight service contracts. They are used to acquire a 

product for the Department (i.e., per-acre, per-unit or per-area, or per head basis). The intent of 

this type of procurement is for the contractor to supply all personnel and equipment in order to 

provide a “service” or “end-result.” Many contractors utilize aircraft (including UAS) to meet the 

performance objectives of End Product contracts for activities such as: animal capture, seeding, 

spraying, survey, photography, etc. Since these are not flight services contracts, the AQD does 

not perform any acquisition service. End Product contracts are administered from the state office 

or BLM National Operations Center (NOC) procurement units. All contracts with cost estimates 

greater than $100,000 are administered from the NOC. 

Contracting officers, procurement specialists, Bureau program managers and aviation managers 

at all levels must be aware of the requirements outlined within OPM-35. 

Understanding the differences between end product contracts and flight service contracts is 

important in order to avoid placing the Department with operational control when it is not 

appropriate. Attempting to exert any influence on certain aspects of the operation conducted 

under an end product contract exposes the Department to risks that would be appropriately 

managed under a flight services contract. 

These contracts will be conducted in accordance with OPM-35. OPM-35 aids in determining 

whether an operation is being conducted as either “end-product” or “flight service” and 

supplements existing DOI policy regarding End Product contracts found in 353 DM 1.2A (3). If 

the provisions of 353 DM 1.2A (3) and OPM-35 are met, the aircraft (including UAS) will be 

operating as a civil aircraft and the aviation management principles normally required for aircraft 

under BLM operational control do not apply.

3.9.1 End Product Contract Specifications 

Specifications in the contract must only describe the desired quantity or quality of the service or 

contracted end-result. BLM contracting officers and resource specialists must consult with BLM 

aviation managers if the acceptable language guidelines do not address a specific project 

requirement or the contract solicitation does not follow the guidelines in OPM-35. End Product 

contracts where contractors could conceivably utilize aircraft (including UAS) must be reviewed 

by the BLM SAM prior to solicitation to ensure that specifications and language do not 

unintentionally imply or determine aircraft operation control. Bureau-wide End Product Contracts 
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(i.e. Wild Horse & Burro) must be reviewed by the BLM National Aviation Office prior to 

solicitation. Reference FA-IB-2015-021

The following list describes acceptable contract language for BLM End Product Contracts. 

• No contract language describing aircraft (including UAS) or pilot capabilities, standards, 

requirements, or aircraft specific payment provisions. 

• The area of work should be described in terms of: scale of area, general topography, 

elevation, slope, vegetation, and accessibility by roads or off-road vehicles, land use 

restrictions for mechanized equipment, etc.

• Aviation Regulations - Acceptable Language: “The Contractor must comply with all 

applicable federal, state and local regulations and appropriate land use permitting 

procedures applicable to their operations.” 

• Airspace Coordination – In areas of military airspace it is acceptable to describe any BLM 

coordination agreements with military airspace scheduling or range control authorities 

and that it is the contractors’ responsibility to coordinate their activities with the 

scheduling office or Range Control. Close coordination is necessary to ensure 

compliance with applicable airspace coordination agreements that states have with 

military authorities.

• Aircraft Equipment Specifications - Acceptable Language: Delete all reference to aircraft/equipment. Suggested example clause: “...Contractor is required to demonstrate to 

the government that the equipment can capture the imagery and/or data as specified in 

the project description.”

• Radio/Communication Requirements - Acceptable Language: “Contractor must provide a 

communication system so that contractor personnel engaged in the project at different 

locations can communicate at all times with each other, and so that government Project 

Inspectors may communicate with the contractor at any time to discuss performance 

matters.” (The government VHF-FM radio system may have to be described.)

• Application validation: Marking/GPS - Acceptable Language: “Application equipment will 

be capable of physically marking or electronically mapping application routes to ensure 

that seed/fertilizer is applied evenly and completely and at the specified rates.”

• Transporting, Passengers and Equipment - Acceptable Language: “Only approved 

contractor personnel, contractor equipment and government-provided equipment required 

for performance ... will be transported by contractor vehicles, trailers, animals or 

equipment.”

• Safety Hazards - Acceptable Language: “Any ground or aerial hazards that would pose a 

danger to Contractor’s personnel or operating equipment must be identified and mitigated 

by the Contractor prior to commencing operations”.

• Aircraft Use Reporting -: Do not mention or require flight hour/aircraft usage reports.

3.9.2 End Product Project Management

Operational Control: During the performance of End Product contracts, DOI will not exercise 

operational control of the aircraft (including UAS) in any way. DOI will not direct the contractor as 

to flight profiles, flight following, landing areas (except for areas that are off limits due to land 

management restrictions), use of personal protective equipment, etc. DOI personnel assigned to 

administer End Product contracts will have no aviation management responsibility or authority. 

Any directions to the contractor must be in terms of the service or end-result being specified,

e.g., desired imagery quality, number and disposition of animals surveyed, etc. It is acceptable to 

inform military airspace scheduling authorities or range control that the contractor plans on 

performing work during specified time periods and provide the military authorities the contractor 

contract information. DOI dispatchers will not perform the airspace scheduling service for the 

contractor. DOI personnel must not become involved in any way with aircraft ground operations 

such as take-off and landing areas, loading, fueling, etc. They can however, be on site for other 
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support activities such as setting ground control, scale bars, etc. or collection of data for ground 

truthing to aid in the overall data collection aspects.

BLM Passengers or Aircrew: BLM personnel are not allowed to board any aircraft that is being 

provided by the contractor during performance of the End Product Contract. BLM personnel 

must not become involved in any way with aircraft ground operations such as take-off and 

landing areas, loading, fueling, etc. 

Aircraft Use Reporting: Since aircraft utilized by the contractor under DOI End Product 

contracts are operating entirely within the applicable 14 CFR as a civil aircraft, and procurement 

is not through AQD, the Bureau will not submit any billing invoice to AQD in conjunction with End 

Product contracts. Any flight time incurred by the contractor will not be recorded or reported as 

DOI or Bureau aviation statistics.

Aircraft Incidents and Accidents: Although aircraft utilized by the contractor under End 

Product contracts are operating entirely within the applicable 14 CFR as a civil aircraft, mishaps 

should be reported in accordance with 49 CFR 830. To continue to promote aviation safety, the 

Bureau will report aviation incidents or accidents incurred by these contractors to OAS. These 

events should be noted in the Contract Daily Diary and reported through channels as normally 

required for End Product contracts.

Reconnaissance/Observation Flights: Before, during or after the performance of an End 

Product contract it may be necessary for Bureau employees to aerially survey or inspect the 

project area. When flights transporting DOI personnel are required, an AQD aviation “flight 

service” procurement (completely separate from the End Product contract) is required. Aircraft 

and pilots must have current OAS approvals for the intended mission and a current DOI contract 

or Aircraft Rental Agreement must be in place. When a DOI procurement is utilized all DOI and 

Bureau aviation management policy, procedures and requirements must be applied.

Operations within Military Airspace: If an “End Product” contract project using aircraft is being 

conducted within Military Airspace (MOA, RA, MTR) it is the responsibility of the contractor to 

coordinate with the Military Airspace Scheduling Office. DOI Contracting Officers and CORs 

should inform the contractor of any DOI agreements with the Military organizations regarding 

airspace. The Bureau may contact the Scheduling Office to alert them of the project and general 

time frames and provide contractor contact information.

3.10 BLM Supplemental Fire Aircraft Acquisition

When existing contracted aircraft cannot meet all demands, supplemental aircraft will be 

requested and acquired using the following procedures:

Fire Aircraft Needed Immediately for Initial Attack 

• Obtain Bureau or cooperator aircraft from adjacent units under existing mutual aid 

agreements. 

• Coordinate with BLM state office to obtain the BLM contracted aircraft from other 

locations within the state. 

• Coordinate with the NAO to reassign BLM contracted aircraft from out of state. 

• Hire On-Call/CWN aircraft available locally. 

Fire Aircraft Needed to Fill Large Fire Orders: Aircraft will be obtained through normal 

dispatch procedures. The BLM exclusive use aircraft are primarily initial attack resources. 
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Assignment of these aircraft to ongoing large fires should be the exception and require

coordination with the State Office. 

Severity Fire Aircraft: Statewide needs will be met with existing aircraft within the state 

whenever possible. When state offices determine that supplemental aircraft are needed, they 

may submit a request for fire severity funding to the Fire and Aviation Directorate. Fire severity 

funding is the authorized use of suppression operations funds (normally used exclusively for 

suppression operations and distinct from preparedness funds) for extraordinary preparedness 

activities that are required due to an abnormal increase in fire potential or danger, or to fire 

seasons that either start earlier or last longer than planned in the fire management plan. 

Specific direction is stated in Chapter 10 of the Interagency Standards for Fire and Fire Aviation 

Operations, which may be found at: 

https://www.nifc.gov/sites/default/files/redbook-files/Chapter10.pdf 

• The NAO will consolidate and adjudicate all state office supplemental aircraft requests 

and determine the number/type/configuration and procurement method of aircraft. If there 

is a possibility to re-position a BLM aircraft from other areas, the NAO will coordinate the 

re-positioning of the aircraft. NAO then will make recommendations of severity funded 

aircraft needs to FA-300 Fire Operations, which makes final approvals of states’ requests.

• Severity funding covers the following costs: aircraft mobilization, daily availability, per 

diem, proficiency/mission currency, rental vehicle, relief crew transportation, additional 

aviation management personnel base pay (non-fire personnel), travel and per diem.

National Preposition Funding: Units may request national preposition funding to acquire 

supplemental fire operations assets. National preposition funding may be used to mobilize 

resources when BLM units: 

• Do not have available preparedness funding 

• Do not have available short-term severity funding; or 

• Do not meet the criteria for use of national severity funding 

Approved national preposition funding may be used only for travel and per diem costs for the 

duration of the assignment, and overtime labor costs associated with the original move. The 

Preposition Request Process can be referenced at: 

https://doimspp.sharepoint.com/sites/blm-fa/fire-operations/ 

3.10.1 BLM Supplemental Fire Aircraft Acquisition

Fire Aircraft Needed to Fill Large Fire Orders: The BLM exclusive use aircraft are intended 

for initial attack operations. If there is a request through the Interagency Resource Order 

Capability (IROC) program for exclusive use aircraft to fill orders for a “large or extended attack 

fire”, typically Type 1 or 2 IMT assignments, consultation with the State Duty Officer, SFMO or 

SAM is required before filling the order. 

3.11 Cooperator Aircraft

Cooperator Aircraft are an affiliated, military, or other Government agency aircraft as defined in 

350 DM 1 Definitions

Cooperative aircraft operations and partnerships are encouraged for the purpose of efficiency 

and standardization in procedure. The NAO and the states shall make a concerted effort to 
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establish cooperative structures to increase capability and avoid duplication and conflicting 

procedures.

Use of cooperator aircraft and pilots; affiliate, state/local government, military, or other federal 

agency aircraft by BLM employees may require prior inspection and will require approval by 

OAS, usually in the form of a Letter of Authorization (LOA) and/or Memorandum of 

Understanding (MOU) (reference 351 DM 2.5.(3). Proposed use of these aircraft must be 

requested through the SAM to the NAO and include the following:

• Name of cooperator agency and point of contact to include phone numbers and e-mail 

address if available.

• Requested aircraft make and model, pilot(s) name, and support equipment.

• Intended use.

• If reimbursement through IBC is contemplated, a copy of the document(s) authorizing the 

relationship (e.g., multi-agency agreement).

• The requesting bureau point-of-contact to include phone numbers and e-mail address if 

applicable.

• Period of need – single use, single year, or repetitive multiyear.

• Military Aircraft Use (if applicable)

o Coordinate with the appropriate OAS Regional Director to assist in a search for 

commercial resource availability.

o Identify and locate military aircraft capable of meeting identified needs.

o Initiate a written request for non-emergency use to the appropriate OAS Regional 

Director.

 Requests shall include statements that clearly demonstrate that the 

requirement is in the national interest and indicates action taken toward 

obtaining commercial resources.

 Military support specifically authorized by statute negates the requirement 

for a statement concerning national interest. The requesting agency must 

furnish a reference to the appropriate statute. 

 

Any employee who is considering using or flying on a cooperator aircraft must consult their 

respective aviation manager to ensure approvals are in place. States are required to obtain 

necessary letters of authorization in advance of intended use (reference 351 DM 4). 

Annual Operating Plans or Interagency Agreements (IAA) specifies how re-imbursement for flight 

services is managed. Note: When using aircraft under USFS contracts reference OPM-39. 

3.11.0.1 Cooperator Aircraft

Use of state/local government, military, or other federal agency aircraft by BLM employees will 

require prior inspection and approval by OAS unless the aircraft and pilot have already been 

approved. Proposed use of these aircraft must be requested by the SAM to the FA-500 for 

concurrence and forwarding the request to OAS West Region Director. 

Any BLM Utah employee who is requested to participate in mission type of aircraft operations by 

another agency shall coordinate with their respective Unit Aviation Manager (UAM) or State 

Aviation Manager (SAM) prior to participation. 

3.11.1 Non-Federally Approved Aircraft
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Reference Interagency Standards for Fire and Fire Aviation Operations, Chapter 16 for protocols 

regarding utilization of non-federally approved aircraft in response to federal wildfire: 

https://www.nifc.gov/standards/guides/red-book

3.12 Senior Executive Service (SES) Flights 

An aircraft may be used to transport SES personnel to meetings, administrative activities, or 

training sessions when it is the most cost-effective mode of transportation. Prior approval is 

required by the solicitor’s office for employees above the GS/GM-15 level, members of their 

families, and all non-federal travelers on the flight. These flights are typically requested through 

the SAM however some of the responsibilities may be delegated to UAMs (refer to applicable 

State Aviation Plan for specifics). DOI requirements and procedures are outlined in OMB Circular 

A-126 and OPM-07. The OPM and OAS Forms may be found at the OAS document library: 

https://www.doi.gov/aviation/library

• Coordination with the State Aviation Manager prior to any SES flight activity is mandatory. 

• All government aircraft use (including SES flights) must be requested and arranged at the 

local level (where the flight is to occur) utilizing a BLM Aircraft Flight Request 9400-1a (or 

equivalent). 

• The SES flight requests require a minimum of seven days advance notice.

All point-to-point SES transportation in government aircraft must be evaluated and 

approved by the Department of the Interior (DOI) Solicitor’s Office. 

• All mission flights (non point-to-point transportation), including the SES mission flights, 

will be approved by a local line manager. Special Use mission flights require the 

completion of a Project Aviation Safety Plan (PASP) and local line manager approval.

Mission flights do not require prior approval from the DOI Solicitor’s Office.

• An AQD-91/Best Value Comparison Form is completed prior to using DOI contract 

aircraft (reference BLM NAP 3.7).

Reference BLM NAP Appendix 3 for SES Flight Scheduling Guide

3.12.1 Senior Executive Service (SES) Flights 

Aircraft may be used to transport SES personnel to meetings, administrative activities, or conduct 

mission flights. These flights are requested through the UAM and usually arranged by the 

appropriate local dispatch. 

• Mission-type flights can be arranged without DOI Solicitors' immediate involvement. 

Coordination with the SAM is required before the flight. 

• Transportation type flights will require coordination and approval from the DOI Solicitors 

office by the SAM.

3.13 BLM Law Enforcement Flights

The state and/or unit plan should describe all procedures related to BLM law enforcement 

aviation that occur at that level. Non-DOI contracted aircraft and personnel requires prior to use: 

• A fiscal agreement for the exchange of funds (reference 351 DM 4 & OPM-39). 

• Aircraft that are not approved by DOI-OAS or USFS (DEA, National Guard, etc.) will 

require a Letter of Authorization (LOA) for those missions not identified in current MOU’s. 
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3.13.1 BLM Law Enforcement (LE) Flights

The BLM Utah Law Enforcement Aviation Supplement is incorporated into this document as 

policy by reference. LE personnel involved in any aviation operation will adhere to DOI and 

bureau aviation policy. LE personnel that are required to utilize aircraft to support LE operations 

shall discuss aspects of the operation with the UAM or SAM, well in advance of operations. The 

UAM will review all LE PASPs before commencing operations. Line officers shall be informed 

of LE aviation activities within their area of responsibility. 

LE personnel involved with aviation activities must be current in required aviation training 

(NWCG and/or IAT) commensurate with the aviation position they will fill, before any aviation 

operations. 

LE personnel will utilize aircraft and pilots that are approved by OAS for the intended use. 

Aircraft contracted for fire/resource operations are not mandated to participate in potentially 

hazardous or threatening LE operations. Missions outside of the scope of these contracts must not 

be undertaken. 

• Certain LE operations could lead to actions in conflict with DOI policy; (reference BLM NAP 

5.6 Emergency Exception to Policy). 

• Certain exceptions to policy for operations of a covert nature are addressed in 351 DM 1.6. D. 

3.14 Search and Rescue (SAR) Flights (see also BLM NAP 3.71.1, 5.6, 5.12 & 5.16)

The use of BLM aircraft and aviation personnel for SAR operations are not considered normally 

planned BLM operations. DOI policy (900 DM 1.10 and BLM H-1112-1.40.C) and the Federal 

Land Policy and Management Act (43.U.S.C. 1742) provide authority to incur expenses and to 

take a temporary lead role in any SAR emergencies in which immediate and quick response can 

save lives. Request for BLM aircraft to respond to a SAR mission is coordinated through the 

UAM, FMO/Duty Officer/IC and the responsible Line Officer. 

• Documentation of the request can be made on a BLM Flight Request 9400-1a (or 

equivalent), on a resource order or in WildCad or equivalent dispatch program.

• Sheriff’s Office SAR: Request for BLM aircraft to assist is typically routed through BLM 

law enforcement officials to the responsible Line Officer. If a request for assistance is 

made directly to the Dispatch Center, the authority to dispatch BLM aircraft and personnel 

is at the District/Field Office Manager level. 

• Notification to the Air Force Rescue Coordination Center and FAA of BLM aircraft 

response is required if the SAR involves a missing or downed aircraft (reference 

Interagency Aviation Mishap Response Guide).

• BLM Exclusive Use contracted aircraft should not be released from their contract for nonagency search and rescue operations. If the local unit deems that exigent circumstances 

exist, and they are unable to provide funding, the COR will work with the CO to facilitate 

release. The NAO program manager should be notified of any release from contract after 

the fact.

3.15 National Guard and United States Military Aircraft Flights

U.S. Military – Requests for U.S. military aircraft support is per agreement between Department 

of the Interior and Department of Defense. The National Interagency Coordination Center is 

authorized to coordinate for fire and large Incident activations. The Military Use Handbook 

describes procedures. Additionally, there are MOUs for non-fire and LE counterdrug joint 
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missions between DOI and DOD. Proposed use of these aircraft must be requested through the 

SAM. Refer to OAS website for current MOU’s and corresponding IBs: 

https://www.doi.gov/aviation/library

National Guard – Each state typically has an agreement between the State and the National 

Guard for fire support resources. A request for National Guard aviation support is coordinated 

with the Geographic Area Coordination Center (reference National and Geographic Area 

Mobilization Guides, Military Use Handbook, and OPM-41). A Cooperator Letter of Approval is 

required to be in place prior to utilizing National Guard aircraft for those missions not identified in 

current MOUs. Additionally, there are MOUs for non-fire and LE counterdrug joint missions 

between DOI and DOD. Refer to OAS website for current MOUs and corresponding IBs: 

https://www.doi.gov/aviation/library. Proposed use of these aircraft must be coordinated through 

the SAM. Requests for approval for those missions not identified in current MOUs must be 

submitted through the SAM to the NAO.

3.16 Unmanned Aircraft Systems (UAS) Flights (see also BLM NAP 5.29)

Policy: BLM UAS operations will be conducted in accordance with the FAA Small Unmanned 

Aircraft Rule (14 CFR, Part 107) and DOI, OPM-11. UAS operations on incidents will be 

conducted in accordance with the NWCG Standards for Fire Unmanned Aircraft Operations

(PMS 515).

• Remote Pilots will possess a DOI Remote Pilot card (OAS-30U) and an FAA Remote 

Pilot certificate. DOI Remote Pilots are required to maintain their FAA Remote Pilot 

certificate as required by FAA. 

• Agency owned UAS will be certified by OAS and have a current UAS Data Card (OAS 

36-U). Annual inspections are required. Refer to OPM-11. 

• UAS flights will have an airspace authorization (FAA part 107, DOI/FAA MOA, COA, or 

SGI). Refer to OPM-11. 

• A signed and approved PASP is required for all non-incident UAS operations. For UAS 

missions occurring on a routine basis, the required PASP can be rolled into a station/unit 

aviation plan (i.e. flight by notification) that is reviewed at least annually (OPM-06). 

• All UAS flights will be reported and submitted on an OAS-2U form.

• Personally owned UAS aircraft are not to be used for agency purposes. Agency 

employees are not authorized to purchase UAS with federal funds or utilize personally 

owned UAS for agency purposes.

• Additional information: Interagency UAS Website or Interagency Fire UAS NWCG 

Subcommittee Website

Presidential Memorandum, February 15, 2015, Promoting Economic Competitiveness While 

Safeguarding Privacy, Civil Rights, and Civil Liberties in Domestic Use of Unmanned Aircraft 

Systems require that:

• Data not essential to the mission of the BLM should be destroyed within 180 days.

• UAS will only be used to collect data consistent with the authorized mission of the BLM. 

Any data-sharing agreements or policies, data use policies, and record management 

policies applicable to UAS shall conform to applicable laws, regulations, and policies.

• UAS collected information can only be shared outside of BLM if it helps to meet the 

authorized mission of this agency.

• It is prohibited to use UAS to collect, use, retain, or disseminate data in any manner that 

would violate the First Amendment or in any manner that would discriminate against 

persons based upon their ethnicity, race, gender, national origin, religion, sexual 

orientation, or gender identity.
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• Program evaluations, per NAP 4.5.3, will include review of the unit’s compliance with 

UAS policies and regulations.

UAS Training

• An FAA Remote Pilot certificate (Part 107) is a pre-requisite for training. 

• UAS Basic Remote Pilot (IAT, A450) is required for all UAS remote pilots. 

• Incident Operations require successful completion of the UAS Incident Operations course

(S-373).

• Training, certification, and qualification as standards or policy requires. 

UAS Purchase

UAS purchase requests are routed to the UAS Program Manager (or designee) via the SAMs.

State leadership should be notified of UAS purchases. The Program Manager will consolidate all 

requests and forward them to the OAS fleet manager via the Division Chief, Aviation. Purchase 

requests must be documented and approved with the OAS-13U and OAS 93U forms and 

forwarded to the UAS Program Manager by the SAM.

Recreational UAS Flights 

BLM has no national restrictions for flying UAS for hobby or recreational purposes on public 

lands. People operating UAS for hobby/recreational purposes do not need permission from the 

BLM to fly on public lands as long as they comply with FAA policy and don’t interfere with official 

government business or emergency operations such as wildfire management. Additional 

state/local office guidance may apply.

Non-Recreational (Commercial) UAS Flights 

• Conduct flights in accordance with current DOI and FAA policy. 

• Additional state/local office guidance may apply

Incident Flights

Flights conducted on incidents will be conducted in accordance with:

• FAA Policy

• OPM-11

• NWCG Standards for Fire UAS Operations (PMS 515)

• Interagency Standards for Fire and Fire Aviation Operations

UAS Investigation Flights

Flights for the purposes of mishap investigation involving death or injury shall be authorized and 

conducted by pilots identified by the NAO UAS Program Manager in concurrence with the NAO

Safety Advisor and/or NAO Division Chief. 

Cooperator Agency UAS Project Coordination

• Any other federal agency operating UAS within BLM jurisdiction will coordinate with the 

Line Officer and UAM prior to the commencement of UAS flight operations. 

UAS Mishaps and SAFECOMS

• UAS mishaps must be reported as per DOI policy. Refer to BLM NAP 4.5.2.

• Cooperator UAS mishaps on BLM jurisdiction will be reported to the Local UAM and the 

program manager. DOI mishap reporting policies also apply.

3.17 Dispatching BLM Aircraft - Flight Requests
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All flights will be arranged by aviation dispatchers and/or appropriate aviation manager except 

for: 

• Flights with a scheduled air carrier on a seat fare basis (Part 121 or 135 scheduled flights 

open to the general public on a ticket sale basis). Seat fare is defined as the cost for a 

DOI employee to occupy one seat between two different airports/heliports when the 

aircraft is not under the exclusive control of the DOI. It does not include any charter or ondemand operation.

• Transactions to acquire an End Product contract.

All BLM flights must: 

• Be approved at the appropriate management level. 

• Be authorized and documented prior to takeoff. 

• Use approved pilots and aircraft as directed by the DMs. 

• Allow only authorized passengers. 

• All passengers shall be given a preflight safety briefing by the pilot or qualified aircrew 

member as per 351 DM 1.5.B. 

• For all flights utilizing DOI contract aircraft, the ordering official/user must assure that 

there is an Interagency Agreement in place with AQD that includes approved funding for 

the flight (reference NAP 3.7). 

The BLM standard format for aviation operations is Degrees and Decimal Minutes (DDD o

MM.MMM’). Reference BLM NAP Appendix 3 for additional details. Utilization of the correct 

format must be discussed between dispatch and the flight crew to assure accurate navigation.

• Note: The format for the US NOTAM OFFICE for Temporary Flight Restrictions 

issued by the FAA and in IROC will be in a Degree, Minutes and Seconds, input with 

NO punctuation (ddmmssN/dddmmssW).

A BLM Aircraft Flight Request 9400-1a (or equivalent) is required to be completed for all non-fire 

flights that do not require a PASP (reference BLM NAP 4.3.2). The 9400-1a Form (Aircraft Flight 

Request/Schedule) can be accessed at: 

https://www.nifc.gov/about-us/our-partners/blm/aviation/administration 

The UAM must review the 9400-1a (or equivalent) Flight Request and obtain approval by 

appropriate level of authority as determined by the Unit’s Line Management and documented in 

the Unit Aviation Plan.

3.17.0.1 Dispatching - Flight Requests

For all non-fire flights, the user must ensure that there is appropriate funding for the mission and 

that necessary supervisory approval has been granted. A BLM Aircraft Flight Request 9400-1a is 

required for all non-fire flights when a PASP is not completed. A Project Aviation Safety Plan 

(PASP) may be required depending on the project/flight complexities. The UAM will review the 

BLM Aircraft Flight Request 9400-1a and obtain line officer approval. 

3.17.1 Categories of Flight with specific procedures regarding Flight Requests: 

Life Threatening Emergency Flight Requests (See also BLM NAP 3.14, 5.6 & 5.16)

• Requests for aircraft to meet life threatening emergency needs should be filled with the 

closest available aircraft with the appropriate capability for the mission.

• Normal protocols associated with ordering/hiring of aircraft can be addressed as time 

allows after the initial response.
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• Local Line Officers are responsible for all aviation activities within their jurisdiction. The 

response to a life-threatening emergency must be coordinated with the UAM, FMO/Duty 

Officer and Line Officer.

Non-Fire Point to Point Flight Requests (see NAP 5.7 Categories of Flight)

• Prior to hiring or arranging for the flight: Complete a cost analysis comparing costs of 

using a chartered or government owned aircraft versus commercial airline or driving, time 

frame requirements, other associated costs. An example Travel Cost Analysis Form 

(OAS-110) is located at: https://www.doi.gov/aviation/library/opm

• Prior to flight: 9400-1a (or equivalent) is completed. UAM reviews and appropriate 

approval obtained (state or local unit determination).

• AQD-91 and Best Value Comparison forms are not required for exclusive use aircraft but 

are required when comparing rentals to fleet, etc. (reference BLM NAP 3.7).

• Flight Manager designated when required (reference National Interagency Mobilization Guide

Chapter 20, BLM NAP 2.6, for specific responsibilities). 

• Resource tracking method determined (reference National and Geographic Mobilization Guide

for details). 

Non-Fire Special Use Activities (see NAP 5.7 Categories of Flight)

• Lead time for flight request, IAA & Task Order issuance, as described in Unit Aviation 

Plan.

• UAM to assess project/mission complexity; determine whether a PASP is required

(reference BLM NAP 4.3.2). 

• 9400-1a (or equivalent) is approved by the appropriate level of authority for low 

complexity one time types of missions. 

• If a PASP is required (reference BLM NAP 4.3.2), a 9400-1a Form may be used for 

dispatch office internal flight tracking purposes.

• AQD-91/Best Value Comparison Form is not required for exclusive use aircraft but is

required when comparing rentals to fleet, etc. (reference BLM NAP 3.7).

Fire Point to Point and Fire Training Flight Requests (BLM Operational Control)

• Dispatch office receives a request, completes a resource order per dispatch procedures. 

• UAM/Dispatch assures the front page of a 9400-1a Flight Request/Schedule or 

equivalent Aircraft Flight Strip (per Dispatch SOP) completed.

• The BLM Fire IAA # is used, and the DOI Fire contract Task Order # for the hired vendor

is used.

• Flight Manager designated when required (reference National Interagency Mobilization Guide

Chapter 20, BLM NAP 2.6, for specific responsibilities).

• Resource tracking method determined (reference National and Geographic Mobilization 

Guides for details).

• Training: Fire training flight requests are made by the supervisor/manager (Helitack, 

SEAT, and Aerial Supervision) to the FMO, duty officer, UAM and coordinated with the 

aircraft dispatcher.

• Contractor directed training flights are coordinated with the PI, airbase manager, or UAM. 

These flights are the responsibility of the contractor. The Dispatcher/UAM is responsible 

for conducting and documenting a cost comparison and Contractor selection rationale

prior to hiring aircraft. (Reference BLM NAP 3.2 for documentation retention)

Fire Operations Flight Requests

• Requests come from:
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o Incident Commander (IC) or designated incident personnel (i.e., AOBD, ASGS, 

ATGS/ATS).

o FMO or duty officer.

o Per unit dispatching plan.

• Initial Attack aircraft requests can be documented on a Resource Order and/or Aircraft 

Dispatch form.

• Initial Attack aircraft requests should be ordered on a Resource Order via IROC and/or 

Aircraft Dispatch Form. Generating and awaiting a Resource Order should not affect the 

response time for an initial attack mobilization within the host Geographic Area or with 

neighborhood agreements across Geographic Area boundaries through established 

dispatch ordering channels. Resource orders through IROC can be provided after 

mobilization has occurred for initial attack. BLM Initial Attack aircraft may be launched to 

new incidents with just the location, bearing, distance and flight following frequency. All 

other pertinent information will be provided to aircrews while en route to include:

i. Destination latitude – longitude coordinates (Degrees and Decimal 

Minutes (DDD o MM.MMM’)

ii. Radio frequencies - air to air/air to ground/flight following

iii. Incident name/contact (if any)

iv. Airspace hazards and dispatch boundary concerns 

v. Other aircraft on scene or en route

• The Dispatcher/UAM is responsible for conducting and documenting a cost comparison 

and Contractor selection rationale prior to hiring aircraft. (Reference BLM NAP 3.2 for 

documentation retention)

• The BLM Fire IAA # is used, and the DOI Fire contract Task Order # is used.

3.18 Aircraft Use Payment Systems

Aviation Information Report Support (AIRS): AIRS is an IBC web-based system utilized by 

vendors for generating and processing flight use invoices. 

• BLM-AK currently renders payment to non-fire vendors via the BLM-AK Pilot Project.

AIRS training - https://www.doi.gov/aviation/aviation-information-report-support-airs-help-video

AIRS Help Desk - Email: AIRS_access@ibc.doi.gov Phone: (208) 433-5010 

Internet Payment Platform (IPP): The Internet Payment Platform (IPP) is a comprehensive 

electronic invoicing and payment information service made available to all Federal agencies and 

their suppliers by the U.S. Department of the Treasury’s Financial Management Service (FMS). 

IPP centralizes transaction processing in the order-to-payment notification cycle, including 

purchase orders, invoices and payments: https://www.ipp.gov/

Aircraft Use Report Manager (AURM): The AURM is used within DOI for government owned 

“Fleet” aircraft billing to create aircraft use report data files which are emailed to 

OASfleetmanager@ios.doi.gov for uploading into the FBMS system. OAS Technical Services 

has also developed a "next generation" Aircraft Use Report Manager application for iPads. 

Forest Service Incident Business System (IBS): Flight time, daily availability, and other 

authorized charges or deductions shall be recorded on a Flight Use Report in IBS for all USFS 

contracted aircraft. The data shall be entered and reviewed by the government and the 

contractor’s representative. BLM employees (including BLM AD employees) that are flight or 

aircraft managers with responsibility to input flight use data into the USFS IBS will need to 
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register with the USFS IBS program. IBS can be found at: apps.fs.usda.gov/ibs (in Google 

Chrome only). 

3.19 Coding for Flight Use Reports 

Documentation of all non-fleet flight services is accomplished on an AMD-23E Aircraft Use 

Report form, which is then entered by the vendor into AIRS. The hard copy form acts as the 

‘Field Receiving Report’ which provides evidence that the flight information is accurate. Until 

further notice, AIRS will be the Government’s “Electronic Receiving Report”, which supports 

Contractor payments that are invoiced and paid through IPP. 

BLM SAMs serve as the COR for exclusive use contract aircraft in their state. As such, they are 

responsible for ensuring that designated alternate CORs and aircraft managers are informed of 

all coding requirements and that flight invoices are properly completed. BLM pilots, in 

coordination with the SAM, are similarly responsible for proper flight invoice coding for fleet 

aircraft.

3.19.0.1 Coding for Flight Use Reports

UAM’s will ensure that coding on flight use reports is correct and invoices are properly 

completed for all exclusive use, On Call, and ARA contracted flights prior to submission into the 

payment system. 

The following business rules apply to all BLM contracted aircraft:

3.19.1 Task “Order” Number: The contract number to be identified on the AMD-23E forms is 

the appropriate order number that was issued by the CO for the applicable contract. 

• Reference https://www.doi.gov/aviation/aqd for On-Call Fire Suppression Task Order 

Numbers for specific type of contract being utilized.

3.19.2 Billee Code: Billee Codes are a required field, for payment by AQD, on the AMD-23E. 

The Billee Code is a good method to query reports in FBMS and should continue to be utilized 

for that purpose.

• For Exclusive Use contract aircraft, the “Hiring Unit” Billee Code will be used regardless 

of the operating location for all Pay Item codes when utilizing a BLM Task Order number. 

3.19.2.1 BLM Utah Billee Codes 

• Utah State Office: 6320. 

• Canyon Country District: 6260. 

• Color Country District: 6700. 

• Green River District: 6720. 

• Paria River District: 6740.

• West Desert District: 6840.

3.19.3 Charge Codes: New direction now allows for simplified coding for aircraft costs 

associated with suppression related charges and Fire Exclusive Use Availability. The following 

outlines new procedures for inputting financial coding on the AMD-23E form.

BLM Nationally Funded SEAT’s: Separate guidance will be provided annually to address 

coding for nationally funded SEATs.
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BLM Fire Exclusive Use contracted aircraft: 

Availability during MAP: 

• FA540 – This is the financial code for entry in the “Charge Code” section of the AMD-23 

for EU Availability only.

 Do not use “FA-540” for anything other than “AV” during the exclusive use mandatory 

availability period.

Availability during Contract Extension: 

• Appropriate four-digit only “Fire Code” (suppression/severity/GACC support code) or;

• Entire (Cost Center, Functional Area and WBS) cost string if utilizing Preparedness 

(LF100), Pre-Positioning (LF561) or other Non-Fire funds.

 

All other pay item codes (FT, SM, PD, EP, ET, SC, etc.): 

• Appropriate four-digit only “Fire Code” (suppression/severity/GACC support code) or;

• Entire (Cost Center, Functional Area and WBS) cost string if utilizing Preparedness (LF100), 

Pre-Positioning (LF561) or other Non-Fire funds. 

BLM hired On Call/CWN/ARA fire aircraft: 

Availability: 

• Appropriate four-digit only “Fire Code” (suppression/severity/GACC support code) or; 

• Entire (Cost Center, Functional Area and WBS) cost string if utilizing Preparedness (LF100), 

Pre-Positioning (LF561) or other Non-Fire funds.

 

All other pay item codes (FT, SM, PD, EP, ET, SC, etc.): 

• Appropriate four-digit only “Fire Code” (suppression/severity/GACC support code) or; 

• Entire (Cost Center, Functional Area and WBS) cost string if utilizing Preparedness (LF100), 

Pre-Positioning (LF561) or other Non-Fire funds.

BLM-hired On Call/CWN/ARA non-fire aircraft: 

• Entire (Cost Center, Functional Area and WBS) cost string for all charges.

• Additional guidance specific to utilizing non-fire aircraft is referenced in BLM NAP 3.7.1, 3.7.2, 

3.8.3, 3.8.4 and 3.17.1

3.19.4 Mission Use Codes: Mission Codes apply only to AMD-23E line entries for flight time. (For all 

non flight time entries AQD will input a default mission code and are not required to be filled out by 

either the aircraft manager or the pilot.) Each specific type of flight will have the unique mission use 

code recorded. Example: A helicopter flies a total of 2.1 hours but does 1.1 hours of bucket work; 0.5 

hours initial attack delivery of firefighters, and 0.5 hours of recon. Each type of flight will be shown on its

own line entry with the specific mission use codes. 

3.20 FEPP

Reserved

3.20.1 Federal Excess Property Program (FEPP) 

This is a USFS administered program for providing government entities excess military aircraft. 

Not all FEPP aircraft are approved for BLM use. The entity that operates the aircraft must be 

approved by OAS prior to use by BLM. 
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3.21 FBMS

All BLM financial activities are managed through the DOI FBMS program. All fire retardant expenditures 

(Full-service contract and bulk purchase) are entered into FBMS by the district or state level designated 

officials (reference state and unit aviation plans). 

End of Year financial procedures are announced via the Departmental and Bureau Instruction 

Memorandum (IM) system. 

3.21.1 FBMS

All flight use payments are completed by DOI AQD and the AIRS program interface with FBMS. 

All fire chemicals (retardant, foams, and gels) expenditures/invoices (full-service contract 

invoices and bulk product invoices) are entered into FBMS at the District level.

3.22 Aviation Program Reviews

Details about aviation program evaluations and fire preparedness reviews are described in BLM NAP 

4.5.3.

3.23 New Program Requests

New program requests involving aerial assets, not already approved by BLM, must be routed through 

the State Director to the Division Chief, Aviation for approval. Upon NAO approval, new program 

requests will be forwarded for consideration of approval to the Associate Director, OAS. This request 

shall include a copy of the NAO approval, and a proposed Operations Plan. New Program Request 

Form is available on the NAO website.
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4.0 Aviation Safety Management Systems 

4.1 General

The BLM Aviation Safety program is modeled after the aviation industry and FAA Safety 

Management Systems (SMS). Each BLM employee and contractor involved with aviation has the

responsibility to plan missions thoroughly, conduct missions with a conservative attitude, and 

respect for the aircraft and environment in which the missions operate. The intent is to improve 

the aviation culture by increasing hazard identification, reduce risk taking behavior, learn from 

mistakes, and correct procedures before a mishap occurs rather than after the accident.

The BLM NAO Aviation Safety & Training Advisor is the focal point for the BLM national level 

program. SAMs are the focal point for state aviation programs, and the unit aviation manager 

(UAM) is the focal point for district/field office aviation program. 

4.2 Safety Management Systems (SMS)

SMS serves to structure the BLM existing safety initiatives and provides a review process for 

how well those initiatives function. SMS is not a safety program; rather it is a system which 

organizes existing safety processes around the concept of system safety and the four pillars 

(Policy, Risk Management, Safety Assurance and Safety Promotion). SMS incorporates a 

proactive approach using hazard identification and risk management to achieve accident 

prevention. Additional information regarding SMS is available at the Lessons Learned website:

http://www.wildfirelessons.net/Home/

4.3 Policy

SMS is a critical element of management responsibility in determining the agency’s safety policy 

and SMS also defines how the agency intends to manage safety as an organizational core 

function.

• Policy guides aviation safety doctrine, philosophy, principles and practices.

• Policy provides framework for aviation plans (reference BLM NAP 3.3).

• Policy assists in the development of local standard operating procedures.

• Policy will foster and promote doctrinal principles and safety management systems within 

the states.

Aviation management policies describe authorities, responsibilities, acceptable operating 

practices, and administrative procedures. These directives provide the structure for the SMS to 

effectively function. Safety is a product of effective policy and management processes. All 

aviation safety standards and policy requirements identified in the BLM NAP 1.6 must be 

followed.

4.3.1 Aviation Life Support Equipment (ALSE)

All personnel engaged in aviation activities must wear appropriate Personal Protective 

Equipment (PPE), depending on the mission (reference NAP 5.4 and 350 DM 1.2.C regarding 

flights on foreign aircraft in foreign countries). Requirements are listed in 351 DM 1.7 and 

outlined in the ALSE Handbook and mission specific guides and handbooks. Reference BLM 

NAP 5.22 and 5.27.1 for additional PPE requirements utilized for helicopter operations and low 

level (less than 500’ AGL) fixed-wing flight operations. Any questions concerning the 

requirements and procedures for obtaining PPE are directed to the local aviation manager. 

Project leaders must ensure that appropriate and adequate ALSE, including PPE, is available 
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and worn by individuals. If required ALSE is not available, all flights will be canceled or

postponed.

4.3.1.1 Aviation Life Support Equipment (ALSE) 

See the DOI ALSE Handbook. If required ALSE is not available, all flights will be canceled or 

postponed until such time the required ALSE becomes available.

Non-fire suppression helicopter flights require that all passengers and aircrew wear approved 

flight helmets. 

Wildland firefighters assigned to wildland fire incidents may wear approved hardhats with 

chinstraps in lieu of flight helmets when being transported as a qualified non-crewmember during 

fire operations from an established and managed helibase/helispot to another established and 

managed helibase/helispot. A managed helibase/helispot is established when there is a helicopter 

crewmember or helibase/helispot manager on the ground at the helibase/helispot before the 

passengers are transported to these locations. All other fire suppression helicopter flights such as 

reconnaissance, PSD, Infrared, cargo missions, etc., require all passengers to wear flight helmets. 

Initial attack helicopter operations require flight helmets for all on board during the initial attack 

deployment phase of the operation until a landing area meeting NWCG Standards for Helicopter 

Operations (SHO) standards for operations and helispot management are met. In accordance with 

the DOI ALSE Handbook, aviation life support equipment, including flight helmets, must be 

maintained and inspected according to the manufacturer's instructions.

4.3.2 Project Aviation Safety Planning (PASP*) 

Accident prevention is paramount when planning individual aviation projects. Flights may not 

deviate from Department and Bureau policy and procedures, except for safety of flight 

considerations. A PASP is required for non-fire Special Use Activities. A 9400-1a (or equivalent)

may be completed in lieu of the PASP for a low complexity/one-time non-fire mission flights. The 

PASP or 9400-1a must be reviewed by the UAM and approved by the appropriate level of 

authority per the state/unit aviation plan. Managers must be briefed by the UAM prior to their 

approval of the plan. 

• PASPs that have a final risk assessment of high will require a SAM review prior to line 

manager approval.

• A courtesy copy of all PASPs will be routed to the SAM prior to implementation.

Projects/flights that occur periodically over a season or fiscal year can have one PASP prepared 

and approved. In this situation a 9400-1a (or equivalent) will be required for each periodic flight. 

The 9400-1a approval level would be at the UAM level with a courtesy notification to the SAM. 

For projects/flights that are conducted by a unit’s aviation operations group (helitack, aerial 

supervision, smokejumpers, UAS) if the project/flight is typical and routine to the operational 

group with mission risk assessment documented in the group’s annual operations plan and the 

state and unit plan allows; then the project/flight can be conducted, without a specific PASP, after 

completion of 9400-1a documentation. 

• “PASPs developed for reoccurring projects will be reviewed, updated and signed each

year (not to exceed12 months). 

• Routine, time critical UAS flights may utilize the Flight by Notification in lieu of completing 

an entire new PASP if the mission falls within the overarching/blanket PASP identified 

within the Unit Aviation Plan. (Reference BLM NAP 5.29)
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Required elements of a PASP include: 

• Project name/Objectives/Supervision

• Justification

• Project date and location 

• Projected cost of aviation resources and funding code(s)

• Desired aircraft, make/model, pilot skills (Included if available and/or specific N# and pilot 

to be noted on 9400-1a) 

• Communication Plan, Flight following and emergency search and rescue plan

• Flight routes/areas and altitudes

• Hazard identification (e.g., weather, takeoff or landing weights, landing areas, wire 

hazards, etc.)

• Wire Strike Prevention (352DM1.9.D) 

o Flight Environment Considerations: Bureau projects often dictate that flights be 

conducted in close proximity to the ground where wires are prevalent

o Risk Assessment/Hazard Maps: To reduce wire strike potential, it is critical that a risk 

assessment be conducted prior to all low-level flights. A low-level flight hazard map 

must be constructed for the local operational area. All preplanned low-level flights 

require a thorough map reconnaissance of the route to be flown

• Description of take-off and landing areas

• Pre-flight briefings/After Action Reviews

• Participants: List individuals involved in flights, their qualifications (HMGB, Aircrew 

Member, Passenger, etc.) dates of last aviation training and include individual’s project 

responsibilities

• Aircraft and equipment approval

• Airspace Coordination and Aerial hazard identification

• Risk assessment utilizing the SMS worksheets as appropriate

• Personal protective clothing/equipment (if required)

• Load calculations and/or weight and balance information requirements

• Unit Aviation Manager’s review and signature (not to exceed 12 months if reoccurring 

project)

• Project Lead Supervisor’s and line officer’s approval signature (not to exceed 12 months

if reoccurring project). See NAP 6.2 for Management Responsibilities and training 

requirements.

A good resource for aviation project planning can be found in the NSHO Chapter 3. Personnel 

needing assistance with mission flight or project planning requirements should contact their 

unit/state aviation manager. Risk assessments of the relevant project hazards can utilize maps, 

aerial photos, Google Earth photos, and SkyVector.com maps to help identify and map out 

where the hazards are located. Particular attention in the risk assessment is essential when 

determining how to mitigate the risk by reducing exposure to hazards in flight profiles, method of 

operations, external load operations, winter weather, and high/hot/heavy operations. 

*U.S. Forest Service uses the title Mission Aviation Safety Plan (MASP) to meet the same 

objective.

4.3.2.1 Project Aviation Safety Plans (PASPs) 

All non-fire suppression projects (mission type of flight) require project planning prior to 

implementation. The level of planning and approval depends on the complexity and scale of the 

project and the level of risk. Fire suppression aviation operations are documented in the Unit 

Aviation Plan. 
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Project Aviation Safety Plans (PASP) will be reviewed and approved by a Line Officer (State 

Director, Associate State Director for State Office projects or high-risk projects, District Manager, 

Field Manager or acting). The District Manager may delegate approval, as described in the Unit 

Aviation Plan, of low complexity projects to the UAM or other designated position. 

• Low complexity, low-risk projects that are planned for completion in one day, can be 

documented on a BLM Flight Request 9400-1a. 

• Higher complexity or higher risk projects will be documented on a PASP. 

• Aviation projects utilizing UAS will utilize the UAS PASP template developed by the 

National Aviation Office. All other elements of aviation project planning must be met.

• Non-complex, one-day UAS projects and Pilot Currency/Training flights will utilize the 

Flight by Notification process identified in the BLM Utah Unmanned Aircraft Systems 

Supplement. 

Project area maps can be completed utilizing GIS with an Aeronautical Sectional Chart

background or using Google Earth with an overlay of the Project area. This will assist in the 

identification of hazards and determining logistics. 

PASP’s and Risk Assessments will be reviewed and approved before implementation. 

Final Risk Level Review Level Required Approval Level Required

Low Unit Aviation Manager District/ Field Office Manager 

Medium Unit Aviation Manager District/ Field Office Manager

Serious State Aviation Manager District Manager 

High State Aviation Manager State Director 

A courtesy copy of all approved PASP’s will be forwarded to the State Aviation Manager at least 

three business days prior to project implementation. 

4.3.3 Aircraft Accident Investigation Process

The National Transportation Safety Board (NTSB) has the responsibility to investigate all aviation 

accidents except for military (49 CFR Parts 830 and 831, Public Law 106-181, and Federal 

Management Regulation 102-33.185). OAS Chief of Aviation Safety is typically invited by the 

NTSB to be a party to the investigation. NTSB is still the controlling authority. Policy, including 

responsibilities and procedures concerning DOI aircraft mishaps are contained in 352 DM 3. Two

Bureau positions may be established to assist the DOI Investigation Team: 1) as a selected 

member of the investigation team working directly for the OAS Safety Investigator-In-Charge 

(IIC), or 2) as the Bureau-designated on-site liaison to coordinate with the OAS Safety

Investigator-In-Charge. NOTE: In many cases, the Bureau will provide only one representative to 

the investigation team and that individual will perform only as a liaison, or as both a team 

member and a liaison. OAS Chief of Aviation Safety, as the Departments representative to the 

NTSB, will determine who will participate. The NTSB IIC will then either accept or deny the 

individuals proposed by the Chief, or OAS IIC.

The BLM investigation team member:

• Must be requested by OAS to be an investigation team member.
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• Will be appointed by the BLM Aviation Division Chief.

• Will normally be BLM NAO staff members or SAM.

• Must not have a personal interest in the mishap.

• Will work directly with the OAS Safety Investigator-In-Charge (IIC).

• Is bound by confidentiality regarding all aspects of the investigation and preliminary 

findings and conclusions.

• Will at no time express opinions of their own or recite opinions of others on the team.

The BLM Liaison:

• Will be appointed by the BLM Aviation Division Chief (FA-500). 

• Will provide on-site coordination and support to the OAS Safety IIC for personnel, 

resources, transportation, office space, communications, etc. 

• Will coordinate and facilitate in and out-briefings with local BLM management.

• Will serve as liaison between the investigation team and local BLM management, BLM 

specialists and/or incident management team.

• Will provide the IIC with technical expertise and Bureau organizational information.

• Will make arrangements for interviews, site visits, document review, etc.

• Will not conduct interviews or investigative actions unless requested by the IIC.

• Will be bound by confidentiality regarding all aspects of the investigation and preliminary

findings and conclusions.

• Will at no time express opinions of their own or recite opinions of others on the team 

• Must not have a personal interest in the mishap.

4.4 Risk Management

Risk management enables personnel at all levels to do exactly what the term implies: manage 

risks. The process of risk management applies to programs and operational missions. The risk 

management process is designed to mitigate risk to acceptable levels by the identification, 

assessment, and prioritization of risks followed by coordinated application of resources to 

minimize, monitor, and control the probability and/or impact of unfortunate events.

These basic decision-making principles must be applied before any anticipated job, task, or 

mission is performed:

• Accept no unnecessary risk: Unnecessary risk does not contribute to the safe 

accomplishment of a task or mission. The most logical choices for accomplishing a 

mission are those that meet all the mission requirements while exposing personnel and 

resources to the lowest possible risk. 

• Make risk decisions at the appropriate level: Making risk decisions at the appropriate 

level establishes clear accountability. Those accountable for the success or failure of a 

mission must be included in the risk decision process. Supervisors at all levels must 

ensure subordinates know how much risk they can accept and when they must elevate 

the decision to a higher level. 

• Accept risk when benefit outweighs cost: Weighing risks against opportunities and 

benefits helps to maximize unit capability. Even high-risk endeavors may be undertaken 

when there is clear knowledge that the sum of the benefits exceeds the sum of the 

potential costs. 

• Integrate risk management into planning and execution at all levels: To effectively 

apply risk management, leaders at all levels must dedicate time and resources to 

incorporate risk management principles into the planning and execution phases of all 
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operations. Integrating risk management into planning as early as possible provides the 

decision maker with the greatest opportunity to apply risk management principles.

Risk assessment can be divided into three levels:

• Time Critical: This method is an “on-the-run” mental or verbal review of the situation 

using the risk management process without necessarily recording the information. The 

process is used to consider risk while making decisions in a time limited situation. Rapid 

risk assessment requires effective training of personnel, effective operational practices 

and a thorough understanding of objectives of the mission.

o Note that “time critical” does not mean “hasty” or “uninformed.”

• Deliberate: This method is used when planning time permits. It involves systematic risk 

identification, risk assessment/analysis, consideration of control options and risk decision 

making, implementation of controls, and supervision. Note that all of these may be 

applied to time critical risk management; however, the time frame in which the rapid 

examination is performed is extremely compressed by the urgency of the situation. This 

will involve documentation of the process and actions.

• Strategic: Strategic Risk management is conducted at the highest levels of the 

organization and is typically applied to multiple systems type complexity and requires 

professional reviews. This method should be used in instances where new technology, 

change, or development of new programs or activities. It involves an analysis of 

cost/benefit of mitigations. The strategic process produces a more permanent record of 

findings and decisions used for long term planning, organizational decision-making and 

as authoritative training resources. 

Risk Management Process: The process by which risk is managed is ongoing throughout the 

mission. It starts in the planning stage, continues to the approval and scheduling phase, is 

evaluated and adapted during the execution phase and is analyzed and collected as lessons 

learned in the post flight phase. Reference NWCG Standards for Aviation Risk Management. 

• Identify Hazards: The first step in risk management is to identify hazards. The hazards 

are the potential sources of danger that could be encountered while performing a task or 

mission. Hazards include, but are not limited to, weather, time of flight, terrain, 

equipment, training, and proficiency level of personnel.

• Assess Hazards: Hazard or risk assessment is part of the risk management process. 

Risk assessment can range from simple to complex but must be detailed. The process of 

assessing hazard causes personnel to analyze the degree of risk associated with each 

threat, and place these in perspective relative to the objectives of the mission and 

organization.

• Develop Controls/Make Risk Decisions: Starting with the highest threat, identify the 

risk control options that reduce exposure to the threats for all of those identified in the 

previous steps that exceed an acceptable level of risk.

• Implement Controls/Execute and Monitor: Implement the plan and ensure that the risk 

controls are known by all and are utilized. Ensure that people know and do what is 

expected of them. A high level of risk that cannot be effectively controlled should be 

reported to the person supervising the operation. Continually evaluate the effectiveness 

of the controls and ensure that the risk remains in balance with the benefits.

• Supervise and Evaluate: Note any changes to the operation, equipment, environment, 

and/or people and how they may affect your plan. It is important to remember that risk 

management is a continuous process! Adjust to changes in the situation in real time by 

remaining vigilant and maintaining your situation awareness to identify unexpected as 

well as planned threats. Track your progress by taking note of intermediate 

accomplishments that will denote and add up to the completion of your objective. 

Additionally, after action reviews are a good way to assure that the supervision and 
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monitoring of the mission are effective and that lessons learned are captured for the 

future.

Risk Assessment Tools: As discussed previously, the second step of risk management is 

assessment of the threats/hazards. There are several tools that may be used to document the 

risk involved in the operation. A good source for a variety of risk assessment tools can be found 

in the NSHO Chapter 3: and https://www.nifc.gov/about-us/our-partners/blm/aviation/safety 

4.5 Assurance

The safety assurance component involves processes for quality control, mishap investigation, 

and program reviews. Assurance emphasizes: 

• Continuous monitoring and evaluation

• Standards for evaluations

• Internal/external audits and evaluations

• Investigations

• Emergency preparedness and response

• Reporting and feedback 

Quality assurance (QA) techniques can be used to provide a structured process for achieving 

objectives. Currently BLM efforts have shifted with more emphasis being placed on the 

assurance pillar which consists of annual review of BLM contracted aviation resources during the 

field season. 

4.5.0.1 Assurance 

The BLM Utah Aviation Safety Management System Assurance Program consists of monitoring 

aviation activities by employees, UAMs, SAM, and NAO program managers. 

• BLM Utah employees are encouraged to notify their supervisor or Unit Aviation Manager 

when they observe non-standard aviation activity/ events. 

• UAMs and Aircraft Managers conduct after-action reviews (AAR) of projects, fire 

suppression operations, SAFECOM events. 

• UAMs will forward any significant AAR findings to the SAM. 

• Morning fire aviation operational briefings will include discussion of the following: previous 

day aviation operations, today’s planned operations, Six Minutes for Safety aviation topic or 

SMS risk assessment topics, and other topics as appropriate. 

• UAMs will review PASP and risk assessments that are prepared by project aviation personnel. 

• The SAM will review all serious and high-risk rated PASPs and will monitor all PASPs.

• The SAM will make site visits to airbases, projects, and fire incidents, coordinating with and 

reporting results to the State FMO, District FMO, and UAM.

4.5.1 Aviation Safety and Technical Assistance Team (ASTAT)

During high levels of aviation activity, it is advisable to request an Aviation Safety and Technical 

Assistance Team (ASTAT). An ASTAT’s purpose is to enhance risk management, efficiency, 

effectiveness and provide technical assistance while reviewing aviation operations. If an ASTAT 

cannot be filled internally, the request may be placed with NICC through established ordering 

channels using individual overhead requests. An ASTAT should operate under a Delegation of 

Authority from the appropriate State/Regional Aviation Manager(s) or Multi Agency Coordinating 

Group. Formal written reports shall be provided to appropriate manager(s) as outlined at the inbrief. A team should be developed to fit the need of the requesting unit and may consist of the 

following:

• Aviation Safety Manager;
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• Operations Specialist (helicopter and/or fixed wing);

• Pilot Inspector;

• Maintenance Inspector (optional);

• Avionics Inspector (optional);

• Aircraft Dispatcher (optional).

4.5.1.1 Aviation Safety and Technical Assistance Team (ASTAT) 

The Great Basin Mobilization Guide describes ordering procedures. Coordinate with the SAM for 

the facilitation of ASTAT requests.

4.5.2 Aviation Safety Communiqué - SAFECOM 

The SAFECOM system is used to report any condition, observance, act, maintenance problem 

or circumstance which has the potential to cause an aviation-related mishap. The SAFECOM 

system is not intended for initiating punitive actions. Mission personnel are encouraged to 

collaborate on SAFECOM development prior to submission to avoid any punitive implication, 

submission duplication and to increase the narrative accuracy of events. Submitting a 

SAFECOM is not a substitute for “on-the-spot” correction(s) to a safety concern. It is a tool used 

to identify, document, track and correct safety related issues. All personnel involved in aviation 

activities are encouraged to submit SAFECOMs. A SAFECOM can be submitted via:

• Website: https://www.safecom.gov/

• Mobile application: https://www.safecom.gov/mobile/#/

• Phone: 1-888-464-7427

Personnel in doubt about completing a SAFECOM should contact their UAM. Reference the BLM 

NAP Appendix 4 for BLM SAFECOM management roles.

• Elevated SAFECOM’s will not be made “Public” until a determination/ investigation has 

been completed. The National Aviation Safety Manager (FA-500) will assign a liaison to 

OAS-Safety on a case–by-case basis.

4.5.2.1 Aviation Safety Communiqué (SAFECOM) 

Aviation operations under BLM Utah operational control that have reportable events will be 

reviewed at the SAM level. SAFECOMs are reportable by anyone who witnesses or has specific 

knowledge of an event. Reports should be sent to the UAM. SAFECOM events for BLM Utah 

aircraft/aircrews that occur under other operational control should have a courtesy copy sent to 

the SAM.

4.5.3 Program Evaluations, Readiness Reviews, Site Visits

Aviation program evaluations/reviews are an integral part of the System Safety Assurance 

program. 

BLM aviation program reviews are conducted at two levels within the department to ensure that 

safety standards, policy compliance and Bureau efficiency objectives are being met. 

BLM Fire Preparedness Reviews: Aviation functional operations and facilities are reviewed as 

part of the total Fire Preparedness review of field/district operations. Reviews are conducted 

every four years by a national level review team. District or state level fire readiness reviews are 

conducted annually. The SAM will be responsible for coordinating annual readiness reviews of 

the state’s aviation crews/personnel, project and base site visits, and developing guidelines for 

UAM oversight of district/field office aviation activities. The SAM has the responsibility to ensure 

the reviews are being conducted for aviation operations within the required time frame and to 
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identify well qualified individuals to conduct the review (reference 

Interagency Standards for Fire and Fire Aviation Operations, Chapter 18 for information). 

OAS Aviation Program Evaluation: OAS will administer an aviation program evaluation of each 

BLM state and the NAO every five years. The purpose of these evaluations is primarily to review 

non-fire aviation activities as they relate to administration, operations, safety, training and 

security. The NAO will identify qualified individuals to assist with the review (reference BLM NAP 

Appendix 5 for schedule). The SAM will assist with the review and provide scheduling and 

logistical support. Additional reviews may be conducted if a need is identified by the aviation 

division chief. 

4.5.3.1 

The next Aviation Program Evaluation for BLM Utah is scheduled for 2026. 

4.5.4 National Fire and Aviation Operations Alert System

The BLM Office of Fire and Aviation has established an “Operation Alert” system designed to 

provide field units and personnel with critical ground or aerial operational information in a timely 

manner. The system is intended to respond to emerging issues as identified through such means 

as SAFECOMS, SAFENETS, investigation reports, after action reviews, etc. This system is not a 

replacement for any existing formal notification and alert system such as Interagency Safety 

Alerts or Aviation Accident Prevention Bulletin. In fact, the intent is for the operations alerts to 

complement these existing systems in those instances where it is appropriate. These alerts will 

also complement the Department and Bureau manual process. The operations alert system will 

provide time sensitive information to state and unit FMOs and aviation managers. It is anticipated 

that these individuals will provide the information to appropriate parties through established 

channels and processes. The Office of Fire and Aviation, Operations (FA-300) and Aviation (FA500) groups manage the program. 

4.6 Promotion

The BLM must promote safety as a core value with practices that support a positive safety 

culture. BLM Aviation Managers are encouraged to promote aviation safety and accident 

prevention at every opportunity, within all fire and non-fire programs. Line Managers play a 

critical role in establishing a just safety culture at the State and Field levels. Safety promotion can 

be accomplished through:

• Training

• Communication

• Reporting and Feedback

• Safety and Mishap Information

• Safety Awards

4.6.1 Lessons Learned

National and State level aviation program managers are responsible for providing input into 

training curriculum development, lessons learned messages, development of new procedures 

and operational methodologies.

SAMs are responsible for disseminating pertinent aviation safety information and actively 

engaging resource and fire managers during annual work plan development.

Additional information regarding Lessons Learned is available at the Lessons Learned website: 

http://www.wildfirelessons.net/Home
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4.6.1.1 Lessons Learned

The UAM should submit any Aviation Lessons Learned from After Action Reviews (AAR’s) to 

the SAM. The SAM will coordinate the development of the lessons learned document and submit 

it to FA-500 Safety and Training Advisor. 

4.6.2 Aviation Safety Awards Program

Aviation safety awards are a positive part of the aviation program and are provided to all 

organization levels. National awards are given following the guidelines in 352 DM 4 for pilots and 

employees. Airward recommendation narratives are submitted through the SAM to the NAO 

Safety and Training Advisor. 

4.6.2.1 Aviation Safety Awards 

The UAM is the focal point for Airwards for events occurring in their District. The UAM will 

coordinate with the SAM, who will sponsor the award with the NAO Safety and Training 

Advisor.
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5.0 Aviation Operations 

5.1 General

As a Bureau, we are often challenged with working in high-risk and dynamic environments that 

are not always predictable. It is the responsibility of each employee, cooperator and contractor to 

conduct aviation operations that have been planned properly, approved by management, that 

utilize the correct equipment and personnel and are carefully executed per SOP to minimize risk. 

Safety is the first priority and leadership at all levels must foster a culture that encourages 

employees to communicate unsafe conditions, policies or acts that could lead to accidents 

without fear of reprisal. The four components of SMS (policy, risk management, assurance, and 

promotion) are critical to the success of safe operations.

State and local units are required to staff exclusive use aircraft assigned to their jurisdiction

throughout the contract period and any extensions. Additionally, local units will ensure that 

support functions (i.e.; airtanker bases and local dispatch centers) necessary for the mobilization 

of national assets (i.e.; large airtankers, Lead planes, SEATs, ASMs and fire helicopters) are 

staffed to support local dispatch as well as GACC to GACC and national mobilization.

5.1.1 General

BLM Utah engages in many aviation operations supporting fire and resource management 

programs. The BLM law enforcement may also be engaged in aviation operations typically with 

cooperator agencies such as County Sheriff Departments, US Drug Enforcement Agency (DEA), 

and National Guard. The work environment is dynamic in nature and requires attention to 

standard operating procedures, good mission planning, and continual evaluation and control of the 

inherent hazards/risks. BLM Utah has exclusive use contracted aircraft, crews, management, and 

support facilities for fire management. The Fire and Aviation personnel at the State Office and the 

Districts provide aviation guidance and management for all BLM Utah programs. 

5.2 Policy, Operational Guides and Handbooks

A list of all of the BLM aviation policy documents can be found in the BLM 9400 Manual and BLM 

NAP 1.6. 

5.3 Public/Civil Aircraft Operations

DOI aviation activities include both “civil” and “public” operations. Civil aircraft operations must

comply with 14 CFR (Federal Aviation Regulations) in the operation and maintenance of public 

aircraft with the few exceptions outlined in DM 350-353. Operators under contract to DOI are 

bound by that contract to conduct operations in accordance with their FAA-approved commercial 

operator or airline certificate specifications, unless otherwise authorized by the contracting 

officer. 

Standard Flight and Duty Limitations (Reference Redbook Chapter 16 for Interim Duty 

Limitations): Interagency standards for pilot duty days and flight time are: 

• 14-hour maximum duty day; 

• 8 hours maximum daily flight time for mission flights; 

• 10 hours for point-to-point, with a 2 pilot crew;
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• A maximum of 42 hours flight time during any consecutive 6-day period. When a pilot 

acquires 36 or more flight hours in a consecutive 6-day period, the pilot shall be given 

the following day off. A new 6-day cycle shall begin upon return from any day off;

• Minimum of 10 hours uninterrupted time off (rest) between duty periods; and

• Two days off within any 14-day period.

If these standards are exceeded, the following time off requirements will be followed. 

• 11 consecutive hours of rest if the duty day or flight time limitations are exceeded by not 

more than 30 minutes.

• 12 consecutive hours of rest if the duty day or flight time limitations are exceeded by 

more than 30 minutes, but not more than 60 minutes.

• 16 consecutive hours of rest if the duty day or flight time limitations are exceeded by 

more than 60 minutes.

There will be no impact to the contractor’s daily availability for these additional time-off

requirements. Notification through the contracting chain of command shall occur and a 

SAFECOM should be submitted.

Maintenance Test and Ferry Flights by Government Pilots on contracted aircraft:

Government Pilots may perform functional maintenance check-flights and ferry aircraft to and 

from the Contractor’s maintenance facilities when it is in the best interest of the Government and 

the following conditions are met:

• Flights are not being paid for by the Government and the operational control remains with

the Contractor.

• The test flight does not follow any installation, overhaul, major repair, or replacement of 

any engine, propeller or flight control system.

• The aircraft is operating under an approved and current OAS Inspection.

• Notification and approval from OAS and the NAO.

5.4 BLM Employees on Non-BLM Aircraft

All agency employees will comply with Bureau and DOI aviation policies when performing 

agency employment-related duties on board any organization’s aircraft and/or aircraft operated 

under any other organization’s operational control. These policies include, but are not limited to: 

approved aircraft and pilot (by carding or cooperator letter of approval), project aviation safety 

plans, flight following, PPE, appropriate flight management, etc. (reference 351 DM 4). 

Exceptions are:

• Flights in foreign countries (351 DM 4.1.E.(4)), (350 DM 1.2.C). Parts 350 - 354 of the DM 

do not apply to international DOI operations (except for fleet operations). However, BLM 

employees are expected to use good judgment and should attempt to follow DOI aviation 

policies to the extent practical.

• Undercover Law Enforcement missions (351 DM 1.6.D) 

• Flights with a scheduled air carrier on a seat fare basis (Part 121 or 135 scheduled flights 

open to the general public on a ticket sale basis). Seat fare is defined as the cost for a 

DOI employee to occupy one seat between two different airports/heliports when the 

aircraft is not under the exclusive control of the DOI. It does not include any charter or ondemand operation (353 DM 1 & OPM-15) 

5.5 Passengers 
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A passenger is any person aboard an aircraft, when traveling on official BLM business, who does 

not perform the function of a flight crewmember or Aircrew member. Unauthorized passengers 

will not be transported in any DOI aircraft. For official, unofficial and unauthorized definitions, 

reference 350 DM 1.8. 

All passengers will:

• Use appropriate personal protective equipment (reference ALSE Handbook).

• Report aviation incidents, operations deviating from policy to the UAM and/or through the 

SAFECOM system.

• Emphasize personal safety as well as the safety of others involved in the flight.

• Meet the requirements of DOI OPM-04. 

Agency employees in off duty status: Federal employees cannot utilize annual leave/LWOP 

or “volunteer” in order to circumvent agency policy. If any aspect of the employee’s activity is 

related to their official duties, they are conducting agency business, irrespective of their pay 

status. 

Reference the regulations regarding off-duty activities in accordance with the Standards of 

Ethical Conduct for Employees of the Executive Branch (5 CFR. Part 2635.802-803).

Non-Federal passengers (not covered by established agreements): (reference 350 DM 

1.8.A(3)) 

• General: A qualified Helicopter Manager or Flight Manager must be assigned to the 

mission. All requirements regarding use of personal protective equipment, flight following, 

load calculations, and hazard analysis must be followed.

• Resource/Project Missions: If the mission is special use, a Project Aviation Safety Plan is

required and must be approved by line management prior to the flight. It must show that 

the carriage of Non-Federal passengers aboard the aircraft is of an official nature and is 

advantageous to the agency. Since the Non-Federal passengers are designated official 

passengers, no flight release waiver is necessary 

• Incident Missions: As a general rule, the Incident Commander on Type I or II Incident 

Management Teams may authorize all flights with Non-Federal passengers on board. On 

local unit fires, the line manager or their designee is usually the approving authority.

Flights on government aircraft with Non-Federal passengers aboard must be in the 

interest of the government. No flight release waiver is required. This general guidance 

may be further restricted by agency local unit policy. The air operations staff should check 

with the local area to ascertain any additional restrictions or necessary approvals.

• Restricted Category Helicopters: Carriage of passengers aboard restricted category 

aircraft is specifically prohibited.

• Local Unit Aviation Manager and State Aviation Manager shall be notified prior to any 

flights with Non-Federal passengers aboard.

Volunteers: Volunteers when traveling on official business, are official passengers, within the 

terms of 350 DM 1.8.A.(3) and BLM 9400.67.A. Volunteers are not permitted to operate aircraft 

or serve as an aircrew member on any DOI aircraft. Volunteers aboard DOI aircraft performing 

mission flights must be pre-approved by the appropriate BLM line manager. During fire mission 

flights, the incident commander with delegation of authority or the local line officer are the 

appropriate levels of approval. OMB 0596-0080 requires use of Volunteer Service Agreement 

form OF301a. 

5.6 Emergency Exception to Policy:
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Federal employees who are involved in an event in which there clearly exists an imminent threat 

to human life, and when there is insufficient time to utilize approved methods, may deviate from 

policy to the extent necessary to preserve life (reference 350 DM 1.3.B). The following provisions 

and follow-up actions apply:

• Personnel involved are expected to use good judgment.

• Personnel involved in the decision-making associated with deviating from policy must 

weigh the risks verses benefit. 

• Any deviations must be documented on a SAFECOM.

5.7 Categories of Flight

The following terminology is used throughout this section under these definitions.

A “Point-to-Point” flight is one that originates at one FAA-designated airport, seaplane base or 

permanent helibase (identified in the FAA Airport/Facilities Directory, FAA Sectional Aeronautical 

Charts or FAA supplement for the geographic area) and flies directly to another developed 

airport, seaplane base or permanent helibase with the sole purpose of transporting personnel or 

cargo (this term does not apply to flights with a scheduled air carrier on a seat fare basis). These 

types of flights are often referred to as “administrative” flights and require the aircraft and pilot to 

be only carded and approved for point-to-point flight. A point-to-point flight is conducted higher 

than 500 feet above ground level (AGL). Point-to-point missions, when flown in Department 

owned or contracted aircraft, shall be considered civil aircraft operations and must be flown in full 

compliance with applicable provisions of 14 CFR.

“Special Use Activities” Special Use Activities involve the utilization of airplanes and 

helicopters in flight operations which do not meet the definition of point-to-point flight (see 350 

DM 1) and which require special considerations due to additional equipment and/or the 

increased complexity inherent in such operations. Point-to-point missions, when flown in 

Department owned or contracted aircraft, shall be considered civil aircraft operations and must 

be flown in full compliance with the applicable provisions of 14 CFR. Regardless of any status as 

a public aircraft, pilots must comply with the applicable provisions of 14 CFR and deviate only as 

authorized by published Department policy. OPM-29 Special Use Activities for Manned Aircraft

5.8 Flight Planning 

Unless exempted by 351 DM 1.4, all flights will be conducted with an approved flight plan. (See 

also National Interagency Mobilization Guide Chapter 20) 

Point-to-Point Flights will be tracked by a FAA - visual flight rules (VFR) or instrument flight 

rules (IFR) flight plan or on an international Civil Aviation Organization (ICAO) flight plan; or in 

accordance with a Bureau approved flight plan program; or in accordance with an OAS Director 

approved vendor flight program specified in a DOI procurement document. FAA flight plans may 

be supplemented by agency flight plans and the administrative tracking and notification 

procedures specified in the National and Geographic Area Mobilization Guides. A qualified flight 

manager (per OPM-04) will be assigned to perform the administrative functions and assure a 

briefing is given to the pilot and a pre-flight safety briefing is given to the passengers (reference

National Interagency Mobilization Guide Chapter 20 for specific responsibilities). A 9400-1a Form 

or other Aircraft Flight Strip (per Dispatch SOP) will be utilized to provide dispatch with the 

appropriate aircraft and pilot information, a passenger manifest, and an estimated time of 

departure and arrival. 
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Special Use Activities: Agency flight plans for fire/emergency mission flights will be 

documented on the Aircraft Flight Strip (per Dispatch SOP) and/or Resource Order. Agency flight 

plans for non-fire/non-emergency mission flights will be documented on the 9400-1a Flight 

Request/Schedule or equivalent Aircraft Flight Strip (per Dispatch SOP) and/or PASP. The flight 

manager and the pilot will plan the mission together. Approval to conduct non-fire/nonemergency mission flights is required prior to flight (see NAP 4.3.2). Elements to be considered 

are:

• Type of mission

• Environmental conditions – departure point, route, destination

• Time frames

• Logistics – fuel, landing areas, equipment, support crew

• Communications

• Airspace, flight hazards

• Aircraft and/or Pilot carding requirements (i.e., ACETA, Low-Level, etc. reference OPM29) 

5.9 Flight Following 

(See also National Interagency Mobilization Guide Chapter 50 and Interagency Standards for

Fire and Fire Aviation Operations Chapter 16)

Sterile Cockpit All Aircraft: Sterile cockpit rules apply within a 5-mile radius of the airport. The 

flight crew will perform no radio or cockpit communication during that time that is not directly 

related to safe flight of the aircraft from taxi to 5 miles out and from 5 miles out until clearing the 

active runway. This would consist of reading checklists, communication with Air Traffic Control 

(ATC), Flight Service Stations, Unicom, or other aircraft with the intent of ensuring separation or 

complying with ATC requirements. Communications by passengers or air crew members can be 

accomplished when the audio panels can be isolated and do not interfere with flight operations of 

the flight crew. 

Exception: When conducting firefighting missions within 5 miles of an uncontrolled airport, 

maintain sterile cockpit until departing the traffic pattern and reaching final altitude. Monitor CTAF 

frequency if feasible while engaged in firefighting activities. Monitor CTAF as soon as practical 

upon leaving the fire and returning to the uncontrolled airport. When conducting firefighting 

missions within Class B, C, or D airspace, notify dispatch that ATC communications will have 

priority over dispatch communications.

Point-to-Point Flight following is accomplished by an authorized flight plan as outlined in NAP 

5.8. Aircraft on FAA IFR flight plans are continuously tracked via radar. Radar tracking for VFR 

traffic is not guaranteed, but is available when requested if the controller workload, terrain, and 

operating altitude allow coverage. The designated flight manager will confirm that the pilot has 

filed and activated an authorized flight plan and performs several functions associated with the 

agency flight plan. When utilizing an FAA VFR flight plan or agency flight plan, the pilot or flight 

manager will notify Dispatch upon departure, arrival at any interim stops, and arrival at the final 

destination to close out resource tracking. The flight following method is documented on the 

Flight Strip or 9400-1a Form.

Mission Flight Following is accomplished by flight crews and agency dispatchers using positive 

two-way communication (agency radio systems, satellite telephones, satellite texting), via the 

internet-based Automated Flight Following (AFF) system, or by agency personnel on the scene 

of an incident or project where the aircraft is operating.
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The method of flight following for fire incidents is documented on an aircraft resource order or in 

a Dispatch Center’s Mobilization/Operating Guide. The method for flight following non-fire 

missions will be documented in a PASP and/or 9400-1a (or equivalent). 

Agency Flight Following begins with providing the departure time, souls on board (total 

personnel on the aircraft), quantity/duration of fuel, and heading to next check-in point. Position 

reports during a mission normally include the aircraft call sign, latitude, longitude, and heading. 

The default standard check-in for flight following is 15 minutes. If this is not possible, reporting 

frequency must be established and briefed prior to the mission and position reporting shall not 

exceed one hour intervals under normal circumstances (reference 351 DM 1.4.B). If the 15 

minute time limitation is to be exceeded, prior approval by the SAM is required (reference 

9400.45.C.2.a). 

• In certain circumstances, a position report may be given by some other descriptive 

location, such as reference to a mission grid-square map, a prominent known landmark, 

etc.

• Flight following may be conducted by FAA air traffic control if the mission flight is 

operating within Class B, C, or D airspace, and with prior notification to dispatch.

• Position reports and tactical radio transmissions should not be given when operating 

within five miles of an airport in the “sterile cockpit” environment.

The BLM standard format for aviation operations is Degrees and Decimal Minutes (DDD o

MM.MMM’). Reference BLM NAP Appendix 3 for additional details. Utilization of the correct 

format must be discussed between dispatch and the flight crew to assure accurate navigation.

Local/on-scene Flight Following: Local flight following by incident or project personnel may be 

implemented and utilized only when certain requirements are met and in place (reference 

NSHO Chapter 4. Page 29 line 28.):

• Local flight follow procedures pre-identified and approved in the 9400-1a or PASP for 

project operations and in conjunction with Dispatch for tactical operations. 

• Flight following procedures and responsibilities have been addressed in pre-flight 

briefings.

• Methods of flight following are in place and tested, including mandatory communication 

between designated flight following personnel and dispatch before flight operations begin.

Positive communication with Dispatch must be maintained continuously during the 

operational period.

• A positive, clean “hand-off” must occur between dispatch and the project site when local 

flight following begins and ends.

• Backup/alternate communication devices are in place, available and tested. 

• A reporting interval not to exceed fifteen minutes (or continuous visual contact) is 

maintained, and the location/status documented on a field radio log.

• Emergency accident and lost communication procedures must be briefed and understood 

by project flight following personnel, the pilot, flight manager, and dispatch. 

Automated Flight Following (AFF): AFF is the preferred method of agency flight following by 

Dispatch Centers since the aircraft N-number/identifier, position, speed, and heading of each 

AFF-equipped aircraft is graphically depicted every two minutes. The ability to resume radio flight 

following will be maintained and utilized in the event the AFF system ceases to function (i.e.

agency network internet connection failure or aircraft AFF transmitter failure). Reference the 

National Interagency Mobilization Guide, Chapter 50 for specific direction regarding AFF.
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5.9.1 Flight Following 

Districts or Dispatch Centers that use a local Flight Following frequency shall note the frequency, 

any applicable tones, and the frequency identifier on the Aircraft Dispatch form, in IROC, and in 

Project Aviation Safety Plans.

5.10 Radio Frequency Management/Communications

Bureau of Land Management policies for radio communications are found in Manual

Sections:MS-1291 Radio Frequency Authorization Manual, and MS-1292 Radio 

Communications.

Do not transmit on a frequency without formal approval from the authorized radio frequency 

management personnel at the local, state, regional or national levels.

5.11 Overdue, Missing or Downed Aircraft

An aircraft is considered “overdue” when it fails to arrive within 30 minutes past the estimated 

time of arrival (ETA) and cannot be located. An aircraft is considered “missing” when its fuel 

duration has been exceeded, it has been reported as “overdue” to the FAA and the FAA has 

completed an administrative search for the aircraft without success. If an aircraft is overdue, 

missing, or downed, initiate the Interagency Aviation Mishap Response Guide and Checklist

(NFES 2659). It is critical that the response plan is implemented, followed and documented 

throughout the duration of the event.

5.12 Mishap Response

The Interagency Aviation Mishap Response Guide and Checklist outlines appropriate response 

to a loss of flight following, or an aircraft incident or accident. The plan describes procedures and 

requirements, including initiation of SAR, fire and medical response, notification of OAS

Safety (1-888-4MISHAP) and BLM management. This guide (or equivalent) is specific to each 

Unit and shall be available in all Dispatch Offices (reference 352 DM 3.5). The guide must be 

updated annually by the date established in the state aviation plan. Dispatch Centers are 

encouraged to augment the Interagency Aviation Mishap Response Guide and Checklist with 

additional local protocols and notification procedures and are required to test the Plan at least 

annually through a simulation exercise. 

• Timely upward reporting of any confirmed or potential accident or incident is critical. If 

there is any doubt on how any occurrence might be classified contact your: State Aviation 

Manager, National Aviation Safety Advisor or the National Division Chief, Aviation (in that 

order) for clarification.

The Interagency Aviation Mishap Response Guide and Checklist is available at: 

https://www.doi.gov/aviation/library

5.12.1 Mishap Response

Each Dispatch Center and Aviation Base will have an Interagency Aviation Mishap Response 

Guide and Checklist updated annually by June 1 with complete BLM notification information. 

Each district’s dispatch center will ensure that an aviation mishap simulation utilizing the guide 

and checklist will occur annually by June 1st. In the event of a missing aircraft or known accident 

under BLM operational control or an event involving a BLM Nevada aircraft/aircrew, districts are 
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to follow the Mishap Response Guide and Checklist. An immediate notification will be made in 

order of immediate availability: State Aviation Manager, Assistant State FMO, State FMO, 

Associate State Director, and State Director.

 

5.13 Transportation of Hazardous Materials

Transportation of hazardous materials aboard agency contracted aircraft must meet the 

requirements set forth in the NWCG Standards for Aviation Transport of Hazardous Materials. 

Transport of hazardous materials aboard commercial aircraft must be in accordance with that 

company’s policy.

5.14 Invasive Species Control 

Aquatic invasive species are easily transported in a variety of ways (i.e., helicopter buckets, 

scoopers, fixed tank helicopters and SEATs utilizing open water sources, fire engines and water 

tenders, and other water handling equipment). Agency personnel should become knowledgeable 

in the preventive measures associated with mitigating the spread of aquatic plants and 

invertebrates. Aviation managers should consult with local unit resource advisors to acquire 

information associated with contaminated water sources, approved water sources, cleaning of

equipment exposed to contaminated water requirements, and other pertinent information. 

Work is underway to develop additional guidance and procedures in the cleaning of equipment 

that has been exposed to aquatic invasive. Additional operational guidelines for aquatic invasive 

species can be found in the Interagency Standards for Fire and Fire Aviation Operations, 

Chapter 12 and Guide to Preventing Aquatic Invasive Species Transport by Wildland Fire 

Operations

5.15 Fire Chemicals, Aerial Application Policy Near Waterways

Interagency policy only allows the use of a product that is qualified and approved for intended 

use. A qualified products list (QPL) is published for each wildland fire chemical type and 

maintained on the Wildland Fire Chemical Systems (WFCS) web site. 

Products must be blended or mixed at the proper ratio by approved methods prior to being 

loaded into the aircraft by authorized personnel, Long-Term Fire Retardant Characteristics and 

Mix Factors.

Personnel involved in handling, mixing and applying fire chemicals or solutions shall be trained in 

proper safe handling procedures and use the personal protective equipment recommended on 

the product label and safety data sheet (SDS). 

For operational guidelines on use of fire chemicals and the Policy for Delivery of Wildland Fire 

Chemicals near Waterways, reference the Interagency Standards for Fire and Fire Aviation 

Operations, Chapter 12.

5.15.0.1 Fire Chemicals and Aerial Application Policy Near Waterways 

Anytime aerial application of fire retardants and suppressants (gels and foams) into waterways or 

inside the 300-foot buffer zone (i.e., 300 feet on either side of a stream) occurs, a report by the 
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Unit Aviation Manager to the District FMO of the application is required. The District FMO is 

responsible for reporting to the Line Officer responsible for the affected area. 

The 2009 Policy for Aerial Delivery of Retardant or Foam near Waterways defines waterway as 

“Any body of water, including lakes, rivers, streams, and ponds whether or not they contain 

aquatic life”. 

• The responsibility to submit the Fire Chemicals Report is the designated Line Officer. 

• References: The Interagency Standards for Fire and Fire Aviation Operations Chapter 12.

• The US Forest Service has avoidance areas for any aerial fire-retardant application. Dispatch 

Centers should have maps of the local USFS avoidance areas. A link to the Environmental 

Impact Statement and the USFS Record of Decision is at USFS Aerial Application of 

Retardant.

5.15.1 Stormwater Pollution Prevention Planning

Airtanker bases shall have appropriate spill containment measures in place. Bases should refer 

to the Stormwater Pollution Prevention Plan (SWPPP) for Best Management Practices (BMP’s) 

and procedures for their specific base. Consult with the local hazmat specialist on requirements. 

SWPPPs will need reviewed/updated annually and SWPPP training conducted for 

airtanker/SEAT base personnel.

5.16 Search and Rescue (SAR) (See also BLM NAP 3.14)

Agency line officers, managers or an incident commander may direct agency personnel to 

participate in SAR aviation missions on or over public lands. 

• All personnel involved with SAR operations should remain within the scope of their 

employment. 

• Proper planning, risk assessments, and briefing the mission prior to an event will 

significantly reduce risk and improve the odds of success.

• SAR operations could lead to actions in conflict with DOI policy (reference BLM NAP 5.6 

Emergency Exception to Policy).

• DOI policy (900 DM 1.10 and BLM H-1112-1.40.C) and the 

Federal Land Policy and Management Act (43.U.S.C. 1742) provide authority to incur 

expenses and to take a temporary lead role in any SAR emergencies in which immediate 

and quick response can save lives.

5.16.1 Search and Rescue (SAR)

If BLM aircraft will be utilized for Search and Rescue activities, the local unit must ensure that a 

cooperative agreement is in place that specifies how the aircraft will be used and how billing will 

be done.

5.17 Large Airtanker (LAT), and Very Large Airtanker (VLAT) Operations 

Airtankers are a national resource, and their primary mission is initial attack. GACCs mobilize 

these aircraft according to National and Geographic Area Mobilization Guides. In addition to 

federally contracted airtankers, military airtankers with the Modular Airborne Fire Fighting System 
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(MAFFS) and cooperator aircraft may be utilized to supplement the federal fleet through 

established agreements. 

Operational considerations concerning LAT, and VLAT operations can be referenced in the

NWCG Standards for Aerial Supervision (SAS), and airtanker contract currently hosted by the 

USFS. Additional airtanker operations information can be found in the Interagency Standards for 

Fire and Aviation Operations, Chapter 16. 

5.17.1 Large Airtanker (LAT), Very Large Airtanker (VLAT) 

Large airtankers are coordinated nationally through the GACC’s (Geographic Area Coordination 

Center). 

MAFFS: The C-130 MAFFS are only activated by NICC. The MAFFS requires a lead plane for 

all drops. Canadian airtankers can be activated by NICC and when that occurs, all aircraft and 

pilots are approved for operations on federal lands. 

5.18 Airtanker/SEAT Base Operations

The airtanker/SEAT base manager supervises fixed wing ground and retardant operations in 

accordance with the NWCG Standards for Airtanker Base Operations (SABO). The SABO

standardizes operations and procedures at interagency airtanker/SEAT bases to ensure safe, 

efficient, and effective operations in support of interagency goals and objectives.

An airtanker/SEAT base manager and required minimum staffing must be identified and in place 

prior to conducting operations. 

Airtanker Base Manager (ATBM), SEAT Manager (SEMG) and base support personnel 

responsibilities, training and currency requirements are outlined in the NWCG Standards for 

Wildland Fire Position Qualifications, PMS 310.1. 

Airtanker/SEAT base staffing requirements are located within the appendices of the SABO

Staffing levels must consider ramp operations, risk management and 7-day staffing. An 

airtanker/SEAT base may have operational limitations, refer to the appropriate base operations 

plan.

Airtanker/SEAT Bases must develop and annually update their Airtanker Base/SEAT Base)

Operations Plan (ABOP/SBOP). Additional administrative requirements (examples: FLIGHT/duty 

day logs/inspection) are located in the SABO or on the NIFC–SEAT website. 

5.19 SEAT Operations

Nationally Funded Preparedness SEATs (EU) as well as National On-Call SEATs are national 

resources. Their primary mission is initial attack. Mobilization is managed by dispatch centers 

with support by a national SEAT Coordinator and aviation managers. The BLM is currently the 

host for the National On-Call SEAT Services Contract.

Operational considerations concerning SEATs can be referenced in the

BLM Nationally Funded SEAT SOP’s, NWCG Standards for Airtanker Base Operations and the 

Standards for Aerial Supervision (SAS). 
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5.19.1 SEAT Operations

BLM Utah utilizes SEATs mainly through Exclusive Use and On-Call Contracts. Utah closely 

coordinates with neighboring BLM states for additional SEAT support. The DOI has contracted 

33 SEATs that are controlled by NMAC and NICC but managed by the GACC and local Dispatch 

Centers when they are within the GA. If BLM Utah needs additional SEATs, they are ordered 

through normal procedures. 

SEATs are primarily an initial attack resource with diminishing effect when operated more than 

75 miles from the support base. They are most effective when operated in multiple plane groups. 

They can drop long-term retardants, fire suppressant gels, foam, or water. The contracts provide 

for a contractor-provided mix and loading unit, which allows for temporary site set up. The BLM 

provides all retardants, gels, foams, and water. SEAT operations will not be conducted from roads 

and dirt/gravel airstrips.

Individual Units may utilize the GACC assigned Preposition and Staging Fire Codes to support 

SEAT operations. The local UAM should work with their local Dispatch Center and GACC to 

establish the appropriate Incident/Project Order Number and Financial Codes. These codes can be 

used to cover required seven-day staffing, additional personnel, equipment, and extended staffing 

for SEAT Operations as requested by the GACC. 

5.20 Foreign Airtanker Operations

The National Interagency Mobilization Guide identifies procedures for ordering foreign airtankers. 

Requests for foreign airtankers will be ordered through the GACC and forwarded on to NICC. In 

accordance with 351 DM 2.3.C all airtanker make and models, regardless of nationality, must be 

Interagency Airtanker Board approved. Each aircraft and pilot(s) will be issued Letters of 

Approval per the procedures outlined in 351 DM 4.1 and 351 DM 4.4 and the 

National Interagency Mobilization Guide. Operations of foreign airtankers will be consistent with 

the procedures outlined in the SAS. 

5.20.1 Water Scooper Operations

Scooping operations may be conducted by single engine or multi engine water scoopers. 

Operational considerations can be found in the Standards for Water Scooping Operations and

appropriate water scooper contract. Currently the USFS is the host for the multi engine water 

scooper contract, with the BLM as the host for the National on-call Fire Boss contract. 

Local Units and States should incorporate water scooper planning into local unit aviation plans 

and state aviation plans. 

Coordination of water scoopers is done at the National, Geographic, State, and local units.

Both multi engine and single engine water scoopers must have an aircraft manager identified. 

SEMGs (or ATBMs) may manage up to 4 aircraft if co-located out of the same location.

5.21 Air Attack, ASM and Lead plane Operations

These air tactical resources conduct operations in accordance with the SAS, and the policies and 

procedures prescribed in the Interagency Standards for Fire and Fire Aviation Operations. 
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Dispatch and ordering procedures are accomplished in accordance with the Geographic Area 

and National Interagency Mobilization Guide. 

The SAS, Aerial Supervision Logbook and associated forms are located on the NWCG website:

http://www.nwcg.gov/publications

Aerial supervision resources will be dispatched, when available, for initial and extended attack to 

enhance efficiency and safety of ground and aerial operations. The rapid response speed of 

aerial supervision aircraft is critical to maximizing initial attack safety, effectiveness, and 

efficiency. This includes responding to incidents outside of the dispatch zone and GACC 

boundaries.

The IROC status of BLM exclusive use air attack aircraft and personnel will be updated daily as

GACC available. Aircraft and personnel will be released from incident at the end of each day to 

be available for IA the following day.

In accordance with NAP 2.5 (FMO Duties) BLM Exclusive Use aircraft will be staffed for sevenday coverage throughout the contract period. Regular Agency employees should be prioritized 

ahead of Casual (AD) employees to staff the aircraft in the event the assigned agency employee 

is not available (days off, etc.). 

Air tactical aircraft must meet the avionics typing requirements listed in the SAS, and the pilot 

must be carded to perform the air tactical mission.

The BLM Air Attack Program is managed by the BLM Air Attack Program Manager. This position 

will provide oversight for operational and strategic movement of national funded Exclusive Use 

ATGS Aircraft in coordination with the National/Geographic Area Coordination centers to 

optimize response efficiency and effectiveness during all planning levels.

• The BLM Air Attack Program Manager or designated Fixed Wing Coordinator GACC 

representative shall be consulted on all orders outside of the hosting GACC.

o Factors that should be considered include but are limited to:

1. Closest resource

2. Days off schedule

3. Continued GACC and local coverage

4. Scheduled maintenance

5. Pilot schedules

6. Weather and Fire Behavior Forecast

• Closest resources apply to all immediate fire responses. This does not include GACC 

aviation preposition orders on Regional support codes.

5.21.0.1 Aerial Supervision/Lead Plane Operations

Aerial supervision's primary function is to manage incident airspace, assist the IC with fire 

information, the tactical direction of aerial resources, and communicate potential or developing 

firefighter and public safety situations. The BLM Utah philosophy is that when available, aerial 

supervision must be dispatched to assist Incident Commanders (IC) regarding fire behavior, 

weather monitoring, assisting crews with access, operational mapping, and communication link. 

Aerial supervision can be sent even if other aerial resources are not dispatched (See BLM 

Operations Alert 01-10).

• A lead plane or Aerial Supervision Module (ASM) is required to be ordered for “congested” 
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airspace incidents that have retardant-dropping operations. 

• Interested potential trainee ATGSs are considered “mission essential.” Other non-aerial 

supervision personnel are not allowed on board during tactical aerial supervision missions. 

The ATGS has the final decision as to who is on board. Requests for potential trainees to fly 

onboard an aircraft during ATGS missions must be routed through the SAM to NAO for 

approval. 

5.21.1 Aerial Supervision Personnel

Personnel associated with aerial supervision will be trained to the standards in NWCG PMS 310-

1 and the Standards for Aerial Supervision (SAS). Training and qualification requirements for 

ASM crewmembers are defined in the SAS. Individuals performing duties as an AITS or ATP

must be certified and authorized by the BLM NAO. AITSs will match days off with the ATP on the 

aircraft they are an aircrew member on. This is for the purpose of maximizing aircraft and crew 

availability.

ATGS training and currency requirements are contained in NWCG PMS 310-1. However, 

additional currency requirements for BLM ATGS are defined in the SAS. The ATGS Cadre 

monitors and coordinates ATGS personnel and training at the GACC level and coordinates with 

National Program Managers, SAMs, GATRs, and the ATGS Cadre Chair.

Personnel who are performing aerial reconnaissance and detection will not perform aerial 

supervision duties unless they are fully qualified as an ATGS and the aircraft is equipped and 

carded for air tactical operations (reference BLM NAP 5.27.2&3 for additional information on 

aerial observation). 

5.21.1.1 Aerial Supervision Personnel 

Aerial supervision can be utilized for detection, fire recon, and resource management flights. The 

primary mission of the planes is aerial supervision on incidents. If other missions are planned, the 

UAM is the point of contact. 

5.22 Helicopter Operations

All BLM helicopter operations must be accomplished in accordance with the NWCG Standards 

for Helicopter Operations, (NSHO), unless otherwise waived by the NAO and/or the aircraft 

contract. 

The applicable hover out of ground effect (HOGE) chart will be used to determine payload limits 

for all BLM helicopter operations for the first time landing into remote landing sites, or when the 

pilot deems that environmental conditions warrant use of HOGE chart.

BLM Exclusive Use contracted helicopters must meet the daily minimum staffing levels defined 

by NSHO (Chart 2-1). Exceptions to minimum daily staffing are noted in the Helicopter 

Minimum Staffing Exceptions section of the NSHO. 

Utilization of the Robinson R-44 helicopter shall be addressed in the State Aviation Plan.

Additionally, the aircraft user shall review OAS Safety Information Bulletin NO. 05-02 “R-44 

Helicopters” prior to ordering. 

National BLM approval is required for new program requests to host the following:

• Cargo Letdown
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• Short-Haul

• Rappel

• Fast Rope

• Single-Skid, Toe-In, and Hover Exit/Entry Operations (STEP)

Requests for approval are initiated by a State Office to the NAO with the final approval made by 

the Division Chief Aviation. The “BLM Aviation Enhancement Application Form” has been 

developed for these requests (reference BLM NAP 3.23).

5.22.1 Helitack

All helicopter personnel responsibilities are outlined in the NWCG Position Catalog. CWN Helitack 

training and currency requirements are contained in the NWCG PMS 310-1 to include the Federal 

Wildland Fire Qualifications Supplement. Exclusive use helitack minimum crew staffing, training and

currency requirements are contained in the Interagency Standards for Fire and Fire Aviation 

Operations. Each unit hosting an exclusive-use helicopter is responsible for providing essential 

management, overhead, equipment, facilities and the resources necessary to fully support the 

helitack crew.

BLM EU Helitack Crews are encouraged to meet the following staffing levels:

• Type 3 helicopter – 10 helitack personnel

• Type 2 helicopter – 17 helitack personnel

• Type 1 helicopter – 24 helitack personnel

Hoverfill operations are authorized for BLM Exclusive Use helicopter crews and aircraft. Before 

an Exclusive Use Helitack Program utilizes hoverfill operations; training, risk management, and 

operational procedures, must be outlined and approved within their Unit Aviation/Helitack 

Operations Plan. 

Helicopter Emergency Longline Last Option (HELLO): 

The HELLO mission is defined as transporting a critically injured person from an otherwise 

inaccessible location using a helicopter longline. HELLO is considered a last resort option, when 

other methods are unavailable or cannot respond in the necessary time frame for life 

preservation. HELLO can be considered, utilizing available resources in the field, to perform such 

a rescue, when faced with this type of life-threatening situation. HELLO should be performed by 

exclusive use helicopter programs if possible. The ultimate goal is to get a critically injured 

patient to definitive care (hospital) by the quickest means available.

HELLO supporting documents can be referenced at: BLM Helicopter Web Page

Fire Helicopter Program Strategy:

The fire helicopter program strategy lays out a path forward into the future for the BLM’s helitack 

programs. Some of the items identified in the strategy are:

• Helitack crew size adjustments to realize the full capability of contract helicopters

o Type 1 helicopter crew staffing at 24

o Type 2 helicopter crew staffing at 17

o Type 3 helicopter crew staffing at 10

• Evaluation of Part 27 or Part 29 twin engine helicopters in Type 2 & 3 operations.

• Expand the Type 1 helicopter program with the addition of 1-2 aircraft.

• Creation of a national helitack Standard Operating Procedures (SOP) document
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5.22.1.1 Helitack 

BLM Utah has two Helitack crews with exclusive use contracted Type 3 helicopters, based at 

Moab and Tooele. 

5.22.2 Single Skid, Toe In, and Hover Exit/Entry Procedures (STEP)

All BLM EU Helitack programs, which are approved to conduct STEP, must outline STEP 

operations in their local aviation plans and adhere to the policies and procedures outlined in 

OPM-40. Exclusive Use Helicopter programs interested in implementing a STEP program must 

follow the steps for new program requests in section 3.23 of the NAP. 

5.22.2.1 Single Skid, Toe-in, Hover Entry/Exit Program (STEP) 

The Moab and Salt Lake Helitack maintain STEP Programs. STEP can be used to support 

medivac, initial attack, and other missions during fire operations. The crews have an approved 

STEP Operations Plan and can perform STEP operations on cooperators' incidents with their 

concurrence. STEP qualified crews should not be held on an incident simply because they have 

STEP capability.

5.22.3 Cargo letdown

BLM cargo letdown will be conducted in compliance with the BLM Cargo Letdown Operations . 

BLM personnel involved in cargo letdown operations shall record initial and recurrent training on 

the BLM Cargo Letdown Trainee Qualification Record (reference BLM NAP Appendix 6).

5.22.3.1 Cargo Letdown 

BLM Utah Helitack Crews participate in the cargo letdown program and maintain requisite 

equipment and qualified Cargo Letdown Spotters in Moab and Tooele. The cargo letdown 

operation allows a Helitack crew to deliver small cargo loads precisely to one or more locations 

without a longline/remote hook and cargo net hook set up.

5.22.4 Type-1 Helicopter Program

The BLM Type 1 Helicopter Program has a primary mission of initial attack. While most effective 

at providing rapid initial response, the crew is well equipped to respond to extended attack 

incidents and critical need missions on large fires. Extended attack incidents that utilize the crew 

to fill critical positions, should immediately order replacement personnel for those positions in 

case the aircraft and crew are reassigned. BLM States may request to preposition the helicopter 

and crew, either directly to the BLM State Duty Officer hosting the crew, or through the National 

Duty Officer (208-387-5876) followed by a resource order placed through the established 

dispatch channels.

5.23 Aerial Ignition Operations

Aerial ignition operations and projects are accomplished in accordance with the 

NWCG Standards for Aerial Ignition. 

The DOI On-Call Small Helicopter contract provides for vendor supplied helitorch equipment and 

mix/load personnel. If a vendor supplied helitorch operation is desired, the CO must be contacted 

prior to ordering. The CO will negotiate the helitorch services pricing.

 
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5.23.1 Aerial Ignition

BLM Utah has equipment (PSD) and qualified operations personnel within the state. Anytime a 

District requires a helitorch, the equipment and personnel may have to be obtained from 

cooperators (BLM, USFS, NPS) or contractors listed on the DOI On-Call Small Helicopter 

Contract. At least one month's lead time will be needed for contractor-provided helitorch 

operations. The SAM will coordinate with FA-500 and OAS.

5.24 Wild Horse & Burro Operations (WH&B)

Wild Horse and Burro operations will be conducted in accordance with the BLM 

WH&B Aviation Management Handbook H-4740-1, the DOI OPM-33 and NAP 4.3.2 Project 

Aviation Safety Planning, if conducted as a flight service contract (reference NAP 3.9 for End 

Product contract procedures). 

5.24.1 Wild Horse and Burro Operations

If BLM employees act as aircrew members or passengers during herding operations, it must be 

noted in a Project Aviation Safety Plan and approved according to the Final Risk Level on the 

associated Risk Assessment. No agency personnel shall be onboarding the aircraft during 

drive trapping and capture operations.

5.25 Aerial Capture, Eradication and Tagging of Animals (ACETA) 

ACETA will be conducted as per the DOI OPM-33, if conducted as a flight service contract 

(reference NAP 3.9 for End Product contract procedures). The DOI On-Call ACETA contract has 

been established to acquire vendor services for ACETA and WH&B operations.

5.26 Smokejumper Operations

Smokejumper dispatch and ordering is accomplished in accordance with the Great Basin, Alaska 

and National Interagency Mobilization Guide. 

5.26.1 Smokejumper Personnel

Smokejumpers: Smokejumper operations are performed according to the Interagency 

Smokejumpers Pilots Operations Guide (ISPOG) and the policies and procedures prescribed in 

the Interagency Standards for Fire and Fire Aviation Operations. 

Smokejumper Pilots: The ISPOG serves as policy for smokejumper pilots’ qualifications, 

training and operations. 

5.27 Light Fixed Wing Operations

Fixed wing dispatch, ordering, and operations must be accomplished in accordance with state 

and unit aviation plans. At minimum flights must meet the requirements outlined in NAP 3.17 for 

flight scheduling/operations.

5.27.1 Low-level Flight Operations (Less than 500’ AGL):

The only fixed-wing aircraft missions authorized for low level operations are:
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• Smokejumper/para-cargo

• ASM and lead operations

• Retardant, water and foam application

• Seeding/spraying

• Other missions approved by a PASP (i.e., resource recon <500’ AGL)

Operational Procedures:

• Fixed-wing aircraft and pilots must be specifically approved for low-level flight operations.

• No passengers are allowed. Non-pilot participants must be qualified as Aircrew Member. 

• A high-level recon will be made prior to low-level flight operations.

• All flights below 500 feet will be contained to the area of operation.

• PPE is required for all fixed-wing, low-level flights (reference ALSE Handbook). Flight 

helmets are not required for multi-engine airtanker crews, smokejumper pilots, Leadplane 

and ASM flight/aircrew members.

5.27.2 Aerial Observer

The purpose of Aerial Observer is to locate and relay fire information to fire management. In

addition to detecting, mapping and sizing up new fires, this resource may be utilized to

describe access routes into and out of fire areas for responding units.

Flights as an Aerial Observer and referenced as “Patrol or Detection” designation should

communicate with tactical aircraft only to announce location, altitude and to relay their

departure direction and altitude from the incident. Training Requirements: Federal Wildland

Fire Qualifications Supplement. 

Only qualified aerial supervisors (ATGS, ASM, HLCO and LPIL) are authorized to coordinate

aircraft operations in incident airspace and give tactical direction to aviation assets.

5.27.3 Non-Fire Reconnaissance

BLM non-fire fixed wing mission flights require at least one agency person on that flight or at

the departure/arrival base meet the IAT requirements of Flight Manager. Agency personnel

must meet IAT requirements for Fixed Wing Flight Manager or NWCG comparable position.

Reference OPM-04 One Way NWCG Position to IAT Position Crosswalk.

https://www.doi.gov/sites/doi.gov/files/uploads/opm-04.pdf

5.27.4 Single Engine IFR/Night Flight

For single engine night flight reference 351 DM 1.3. 

5.27.5 Backcountry Airstrip Operations 

Reserved

5.28 Law Enforcement Operations (LE)

LE personnel involved in any aviation operation will adhere to DOI and Bureau aviation policy. 

Local LE personnel that are required to utilize aircraft to support LE operations shall discuss all 

aspects of the operation with the UAM or SAM, well in advance of operations. The BLM SAM 

must be briefed on all BLM law enforcement involvement in Short-Haul missions occurring within 

their state. The UAM will review all LE PASPs prior to commencing operations. Line officers shall 

be informed of LE aviation activities within their area of responsibility. 

LE personnel involved with aviation activities shall receive and be current in required aviation 

training (NWCG and/or IAT) commensurate with the aviation position they will fill, prior to any 

aviation operations. 
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LE personnel will utilize aircraft and pilots that have been approved by OAS (carded/LOA/MOU)

for the intended use.

Aircraft contracted for fire/resource operations are allowed to conduct non-threatening 

surveillance and reconnaissance law enforcement missions only. 

• Certain LE operations could lead to actions in conflict with DOI policy (reference BLM 

NAP 5.6 Emergency Exception to Policy).

• Certain exceptions to policy for undercover Law Enforcement operations are addressed 

in 351 DM 1.6.D. 

5.29 Unmanned Aircraft Systems (UAS) (see also BLM NAP 3.16)

Minimum Operational Requirements: The following requirements must be met prior to any 

operational use of UAS:

• Approved operations plan: 

o PASP (non-fire/incident, planned project) 

o Flight by notification (non-fire/incident spontaneous flight)

o Fire/Incident: See below

• Airspace authorization (part 107, DOI/FAA MOA, COA, or SGI). 

• Certified Remote Pilot(s) possessing DOI (OAS 30-U) and FAA Remote Pilot certificates.

• Certified UAS and current UAS data cards (OAS-36U).

• A NOTAM must be filed for all operations other than standard part 107 flights. 

• UAS NOTAMs are depicted online on the Sky Vector website.

• Personally owned UAS or model aircraft may not be used by federal agencies or their 

employees.

Interagency Fire/Incident UAS Operations:

• Fire/Incident UAS Operations information is posted on the Interagency Fire UAS Website.

• Questions pertinent to incident UAS Operations or UAS ordering should be routed to the 

UAS Fire Coordinator at 208-387-5335.

• Fire/incident flights shall be conducted in accordance with the NWCG Standards for Fire 

UAS Operations (PMS 515) and the Interagency Standards for Fire and Fire Aviation 

Operations. 

• Flights within a TFR require a Special Government Interest Waiver (SGI). SGI requests 

shall be routed to the FAA via the UAS Fire Coordinator (208-387-5335).

• Cooperators, pilot associations and volunteer aviation groups or individuals may offer to 

fly unmanned aviation missions (i.e., aerial surveys, fire reconnaissance, infrared 

missions, etc.) at no charge to the IMTs. Although these offers seem very attractive, we 

cannot accept these services unless they meet FAA, USFS/DOI policy. 

5.30 Fleet Aircraft

The BLM currently operates seven Fleet aircraft. N49SJ, N190PE, N32PX, N437CC, N618, 

N162GC, and N700FW are DOI owned aircraft operated by the BLM. 

• N49SJ is a De Havilland DHC-6 Twin Otter; the primary mission is smokejumper delivery. 

BLM NAO provides overall management of the aircraft. The aircraft is assigned to the 

Great Basin Smokejumpers, in Boise. 
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• N190PE is a Pilatus PC-12; the primary mission is utility and fire logistics support. BLM 

NAO provides overall management of the PC-12. The aircraft is assigned to Alaska Fire 

Service a portion of the year and Boise NAO the balance of that year.

• N32PX is a Cessna 206; the primary mission is as a utility aircraft. The BLM AlaskaOffice of Law Enforcement and Security will have primary use of the aircraft through the 

calendar year flown by dual function special agent/ranger-pilots. The management of the 

aircraft will fall under the BLM Alaska Aviation Office with mission management under 

AFO/AKSO and Anchorage Interagency Dispatch Center.

• N437CC is a CubCrafters CC-18-180 Top Cub. The primary mission is as a utility aircraft.

The BLM Alaska Office of Law Enforcement and Security will have primary use of the 

aircraft through the calendar year and flown by dual function special agent/ranger-pilots.

The management of the aircraft will fall under the BLM Alaska Aviation Office with 

mission management under FDO/AKSO and Anchorage Interagency Dispatch Center.

• N618 and N162GC are Beechcraft Super King Air B200’s; the primary mission is 

ASM/Leadplane operations. BLM NAO maintains overall management responsibility. The 

aircraft is assigned to the National Aviation Office.

• N700FW is a Quest Kodiak K-100; the primary mission is utility and fire logistics support. 

BLM NAO provides overall management of the K-100. The aircraft is assigned to Alaska 

Fire Service a portion of the year and Boise NAO the balance of that year.

BLM fleet aircraft are operated in accordance with the BLM Fleet Aircraft Standard Operations 

Procedures Guide (reference BLM NAP Appendix 7).

5.30.1 Fleet Aircraft

BLM Utah has no fleet aircraft

5.31 Non-Federally Approved Aircraft

Reference Interagency Standards for Fire and Fire Aviation Operations, Chapter 16 for protocols 

regarding utilization of non-federally approved aircraft in response to federal wildfire: 

https://www.nifc.gov/standards/guides/red-book

5.32 Snow Operations

All snow operations will be conducted per Departmental Policy. 351 DM1.3 J(4) Snow 

Operations, 351 DM1.6 Special Operations (A) Cold Weather & 351 DM 1.7 Special Use 

Activities.
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6.0 Aviation Training 

6.1 General 

Aviation training is essential to ensure that BLM maintains a safe and efficient aviation operation 

in pursuit of the Bureau’s mission. Aviation users, supervisors, and managers need to make 

certain that they and their employees are knowledgeable of the inherent hazards of aviation 

operations and have been provided the necessary skills, training and equipment to be successful 

conducting aviation operations. There are two separate, but linked, training programs for BLM 

Aviation: NWCG fire curriculum and Interagency Aviation Training (IAT) non-fire curriculum. 

6.1.1 Fire Training and Qualifications

The National Wildland Coordinating Group (NWCG) guides fire and fire aviation qualifications.

Personnel serving in NWCG positions need only meet the qualification and currency requirements required in the NWCG Standards for Wildland Fire Positions Qualifications, PMS

310-1 or other interagency guidance as appropriate (smokejumper Spotter, ATS, ATGS,

LPIL, BLM Exclusive Use Helitack, etc.).

 

BLM agency-specific qualifications not in the PMS 310-1 can be found in the Federal

Wildland Fire Qualification Supplement. 

6.1.2 Aviation Training for Non-Fire Flight Activities and Positions

The DOI Aviation User’s Interagency Aviation Training Program (IAT) regulates the “non-fire” aviation 

training requirements for Bureau personnel. Individuals holding a current qualification under the 

Incident Qualification Certification System (IQCS) may also be qualified to perform some equivalent 

non-fire aviation positions under IAT guidelines and do not require additional IAT training. Reference: 

One-Way NWCG Position to IAT Position Crosswalk located within Interagency Aviation Training (IAT) 

Guide.

Training requirements for non-fire aviation positions are located in OPM-4. A description of each 

position and role can be found in the Interagency Aviation Training (IAT) Guide.

Aircrew Member: An Aircrew member is a person working in and around aircraft who is 

essential to ensure the safety and successful outcome of the mission. Aircrew Members are 

required to: 

• Be on board or to attend to the loading and unloading of passengers and cargo at all 

landings and takeoffs

• Attend to external loads 

• Ensure all passengers have received a safety briefing prior to all flights. 

Required training:

• A-100* Basic Aviation Safety (required in classroom for initial training) 

• A-110 Aviation Transportation of Hazardous Materials 

• A-200* Mishap Review

*Required every three years

An employee may be authorized to complete the initial Aircrew Member training on-line, on a 

case-by-case basis and at the discretion of the SAM. A written request must come from the 

employee’s supervisor to the SAM explaining why it is not feasible to attend and complete a 

classroom A-100 Basic Aviation Safety course prior to the day of the mission. 
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BLM requires that personnel involved with helicopter external load operations must comply with 

the following:

• All personnel involved in hover hook ups must complete S-271 Helicopter Crewmember 

or A-219 Interagency Helicopter Transport of External Loads. 

• All personnel involved in long line work must be either:

o Currently qualified as a Helicopter Crewmember (HECM) or; 

o Currently qualified as an aircrew member and completed A-219.

• Documentation for non-fire personnel, indicating the completion of the required training to 

perform external load work must be maintained at the interagency aviation training 

website: https://www.iat.gov/. 

• BLM adheres to the Federal Wildland Fire Qualifications Supplement which requires 

triennial A-219 and A-110 attendance to maintain Helicopter Long Line/Remote Hook 

Specialist (HELR) qualifications.

BLM Pilot – Fleet (2101, 2181 position series) & Incidental/Dual Function:

All pilots will be entered into a pilot training program approved by the BLM Division Chief, 

Aviation.

Minimum pilot training requirements for DOI employee pilots are outlined in OPM-22. 

6.2 Management Responsibility

Supervisors and managers are those individuals that have management or supervisory oversight 

responsibilities for programs using aviation resources for mission accomplishment. 

6.2.1 Supervisory Personnel 

A person who supervises employees that use aircraft to accomplish Bureau programs (first and 

second level supervisors). These may include but are not limited to such positions as State Fire 

Management Officers and their Deputy/Assistant, District Fire Management Officers, Dispatch 

Center Managers, Wild Horse and Burro Program Supervisors and Law Enforcement 

Supervisors. 

Required Training: 

• *M-3 Aviation Management for Supervisors (initial course either in a classroom or online)

• *A-200 Mishap Review 

*Required every three years 

6.2.2 Line Managers

Line managers are those individuals who are responsible and accountable for using aviation resources to accomplish BLM programs. These may include but are not limited to such positions 

as State Directors and their Deputy/Associate, District Managers, Field Office Managers, Fire 

and Aviation Assistant and Deputy Assistant Directors.
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Required Training: 

• *M-3 Aviation Management for Supervisors (initial course either in a classroom or online) 

or; 

• *M-2 DOI Aviation Management for Line Managers briefing 

*Required every three years

6.2.3 Aviation Managers at the Local, State and National Level

Individuals with aviation management responsibilities for a unit, state, regional or national level 

and serve as a focal point for aviation services and management. These include such positions 

as unit aviation managers (UAM/UAO), state, regional and national program managers, and 

helicopter and fixed-wing operations specialists. Aviation Managers must meet the training 

requirements outlined in the IAT Guide. 

6.2.4 Aviation Contracting Responsibilities COR Training Requirements 

BLM CORs and alternate CORs, on BLM exclusive use contracts, are required to have training in 

DOI aviation policy, basic contract administration, and contract performance verification and 

understanding technical aspects of contracts. Initial and recurrent COR training requirements can 

be found in the DOI COR Manual or obtained from AQD contracting officers. CORs are required 

to be registered in the FAI Cornerstone OnDemand (CSOD) and be certified as a COR by the 

Federal Acquisition Institute before performing the duties of the position on a DOI contract. FACCOR initial requests and renewal/maintenance requests should be submitted through the Lead 

Acquisition Official in the State for submission to the Bureau Procurement Chief in WO. These 

should not be submitted directly to DOI. 

6.2.5 Contractor and Cooperator Pilot Training

BLM aviation managers at all levels are responsible for assuring that contractors and 

cooperators are provided adequate briefings of mission requirements, standards and 

procedures. This may be accomplished through classroom training, computer-based training, 

simulations, pre-work conferences, aircraft and pilot inspections, pre-flight briefings or other 

appropriate venues.

6.2.6 Pinch Hitter Training

Pinch Hitter training is encouraged to be completed by aviation personnel whose primary job 

requires extended flight time as an aircrew member, Spotter, ATGS or reconnaissance duties.

Requests for training should be routed via your immediate supervisor to your respective State 

Aviation Manager (SAM).

6.3 Instructor Standards

• Standards for NWCG Instructors are outlined in NWCG Standards for Course Delivery 

PMS 901-1 . 

• Instructors for IAT courses will meet the IAT trainer requirements of the 

Interagency Aviation Training Guide. 

6.4 Development

The NAO offers an Aviation Leadership Development Initiative (ALDI) opportunity for aircraft 

managers and unit aviation managers. This opportunity is available to GS-7 to GS-9 individuals 

who currently have aviation management responsibilities along with an interest in a career in 

aviation management. An Instruction Memorandum is issued periodically informing potential 
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candidates of the opportunity and application process. The program runs approximately 24-28 

months, while maintaining the employees’ current position requirements.

Aviation/Pilot and Pilot Mentor Developmental Program: The NAO has two separate 

Aviation/Pilot Developmental Programs that provide training for employee development in the 

aviation manager and pilot career paths. The objective for these positions is to develop well 

qualified aviation managers and pilot candidates with the necessary skills and background to 

compete for interagency aviation vacancies at the state and national level. These opportunities 

are for BLM employees that meet the requirements of 351 DM 3.2 and have identified career 

goals in flight operations. These programs are filled on an as needed basis and as candidates 

are identified.
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7.0 Airspace Coordination 

7.1 Interagency Airspace Coordination

Interagency airspace coordination is accomplished through the Interagency Airspace 

Subcommittee (IASC) charted under the NIAC. Guidance and education is provided through the 

NWCG Standards for Airspace Coordination. 

7.1.1 Interagency Airspace Coordination 

To promote safe, consistent, and standardized approaches to airspace coordination, the procedures 

outlined in the NWCG Standards for Airspace Coordination will be utilized. Dispatch is 

responsible for advising pilots when multiple aircraft are in-route to or sharing the same general 

area of airspace (if incident aerial supervision is not in place to fulfill this role) and for 

notification of neighboring dispatch centers (per boundary airspace management plans) when 

flight activity is occurring within five miles of a dispatch area boundary. Dispatch is also 

responsible for making the necessary notification calls to attempt the de-confliction of Military 

Training Routes (MTRs) and Special Use Airspace, forwarding requests for Temporary Flight 

Restrictions (TFRs) to the appropriate FAA facility, and disseminating NOTAMs (Notice to 

Airmen) issued by FAA Flight Service Stations. Dispatch efforts in airspace coordination do not 

replace or supersede the requirement for pilots to obtain complete information from the FAA 

about the airspace in which they intend to fly, and any current NOTAMs that have been issued. 

Likewise, pilots must still communicate positions, altitudes, headings, and intentions with each 

other, and employ “see and avoid” tactics at all times. Situational awareness, active listening 

skills, and timely, accurate communication by ALL are the keys to successful traffic separation 

and airspace coordination. 

7.2 Flight Planning, Hazards and Obstructions

It is the pilots’ responsibility to plan the flight and meet the requirements of 14 CFR 91.103

Preflight action. It is the flight manager’s responsibility to provide information to the pilot for the 

project area and mission objectives. It is the aircraft dispatcher’s responsibility to inform the 

aircrew of “boundary airspace” issues and coordinate with neighboring dispatch centers 

(reference Airspace Boundary Plan, this chapter). State/districts are responsible to develop area 

flight hazard maps or planning tools that are posted at: operating bases, aircrew briefing 

packages, and dispatch office. The following hazards or locally significant areas should be 

depicted:

• Military Airspace – Warning Area (WA), Restricted Area (RA), Military Operations Area 

(MOA), Alert Area (AA), Prohibited Area (PA), Military Training Routes (MTRs) such as 

instrument flight rules military training routes (IR), visual flight rules military training routes 

(VR) , Controlled Firing Areas (CFA), Slow Routes (SR), Aerial Refueling Routes (ARs) 

and Low Altitude Tactical Navigation (LATN) Areas. 

• Airspace – Class B/C/D and National Security Areas

• Airports/airstrips – public and private, military

• Dispatch zone boundaries

• Parachute, hang glider, rocket, model airplane operating areas

• Towers over 200 feet. Other towers as locally determined significant
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• Wires – Major transmission lines, other lines determined locally as significant (wires 

crossing – canyons, rivers, lakes, near airports)

• Update/Revision date

7.2.1 Flight Planning, Hazards, and Obstructions 

The SAM will coordinate with the UTSO Fire GIS personnel to develop and produce an annual 

flight hazard map for all BLM Utah Districts. The maps will depict dispatch jurisdiction, military 

(MOA, RA, and MTR) and FAA Class B, C, and D airspace, BLM and USFS fire airbases, 

towers, wires, wind turbine farms, other aviation hazards. 

The UAMs are responsible for sending the SAM updated hazard information by February 1. 

7.3 Fire Traffic Area (FTA)

The FTA provides agency communication protocol through a standardized structure to enhance 

air traffic separation over wildfire or All-Risk incidents. The structure emphasizes established 

communications, clearances and compliances. See the SAS for details. 

7.4 Temporary Flight Restriction (TFR)

In order to enhance safety during an incident, the FAA may be requested to issue a TFR that 

closes the airspace to non-participating aircraft (with some exceptions). While there are currently 

nine different types of TFRs, the most commonly issued TFR for wildfire is 14 CFR 91,137 (a) 2 

which is explicit as to what aviation operations are prohibited, restricted or allowed. Aviation 

Managers requesting a TFR should be familiar with the ordering procedures, coordination protocol 

and exceptions that are outlined in Chapter 6 of the NWCG Standards for Airspace Coordination. 

TFRs are not authorized by the FAA for resource management projects or planned prescribed 

fires. A NOTAM D may be requested through the aircraft dispatcher at a local GACC who will 

contact the local Flight Service Station (FSS). 

Non wildfire TFRs are under the jurisdiction of the FAA. All participants involved with an “all risk” 

TFR should be acquainted with the FAA’s publication “FAA Airspace Management Plan for 

Disasters”. 

Presidential (VIP) TFRs (91.141) involve a set of concentric circular Temporary Flight 

Restrictions with a 10 nautical mile diameter inner ring inside a 30 nautical mile outer ring. Flights 

within the Presidential TFRs require coordination well in advance of the TFR implementation. For 

further information, contact a qualified Airspace Coordinator.

7.5 National Firefighting Aircraft Transponder Code (1255) 

The FAA has provided the 1255 transponder code as the national designation for firefighting 

aircraft. It is not agency specific. The code must be utilized by aircraft responding to and 

operating over fire incidents supporting suppression operations unless otherwise directed by air 

traffic control (ATC). It is not to be used for repositioning or during cross-country flights. It is 

authorized specifically for firefighting and is not to be used for FEMA or all-risk disasters.

Reference NWCG Standards for Airspace Coordination, PMS 520 and NWCG Standards for 

Aerial Supervision. PMS 505.

7.6 Airspace Boundary Plan
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When resources are dispatched by multiple units to an incident or area that shares a common 

boundary, care should be taken to ensure safe separation and communication of responding 

aircraft. Boundary Plans should be prepared that focus on a 10 NM wide “neutral airspace” 

corridor for mutual or exchanged initial attack areas or zones. Agencies conducting flight activity 

within the boundary corridors should implement notification procedures to adjoining agencies and 

cooperators (reference NWCG Standards for Airspace Coordination Chapter 7 for details).

7.6.1 Airspace Boundary Plan 

Each dispatch center is required to develop and implement a Boundary Airspace Management 

Plan and checklist/procedure for notifying neighboring dispatch centers whenever there is 

aviation activity occurring within five miles of a dispatch area boundary. Aerial operations on, or 

adjacent to agency/cooperator boundaries, and areas where a neighboring agency/cooperator 

provides fire suppression (mutual aid, shared or exchanged initial attack areas or zones) require 

increased management and coordination. The situation we seek to avoid is having two or more 

agencies/cooperators conducting simultaneous uncoordinated aviation operations within these 

areas, which would unknowingly put the responding aerial resources within proximity to one 

another, placing aircraft and crews at risk. The purpose of this plan is to identify such boundaries 

and IA zones and provide means of communication, coordination, and airspace de-confliction 

within those areas. 

Boundary Airspace Management Guidelines and Procedures 

A ten-mile-wide neutral air corridor will center on agency/cooperator boundaries. The corridor for 

mutual or exchanged initial attack areas or zones will encompass the whole zone plus five miles 

outside the zone boundaries. 

Any agency conducting aerial operations within a boundary corridor or near a zone boundary will 

immediately notify the adjoining agency/cooperator of such operations. This is accomplished to 

and from dispatch centers prior to commencing air operations and when operations cease. 

Examples of aerial operations include reconnaissance, fire suppression missions, special use 

aviation projects, resource management flights, etc. 

Agency aircraft will establish contact on the assigned air-to-air frequency. If contact cannot be 

established on the designated air-to-air frequency, pilots may attempt initial contact on Air Guard 

(168.625 MHz). This frequency will be designated for initial call-up and coordination between 

converging aircraft within corridors and boundary zones only when contact is not otherwise 

possible. This frequency is programmed as a default receive frequency in all agency and contract 

aircraft FM radios and is intended for initial contact and emergency purposes only. It is 

imperative that this frequency is not utilized for tactical or logistical purposes. 

If Air Guard is used to establishing initial contact, aircraft are expected to switch to an alternate 

frequency. 

7.7 Airspace Deconfliction 

While the word “deconflict” is not in the dictionary, it is a commonly used aviation term describing 

the process of reducing the risk of a mid-air collision or a TFR intrusion. Airspace deconfliction 

should occur for both emergency response and non-emergency aviation activities.
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Deconfliction can be accomplished through the following measures: 

• Pilots must obtain all information pertinent to flight before flying. This is accomplished by 

obtaining a briefing from the FAA through the Flight Service Stations. This is the official 

source of NOTAM information.

• Dispatching units should obtain scheduling information from DOD units that have special 

use airspace or military training routes and share this information as “Aircraft Hazards” 

information on the NWCG Aircraft Dispatch Form, PMS 250 when the aircraft are 

dispatched. For non-emergency flights, information should be shared through common 

communication protocol.

• A variety of aviation Internet websites are frequently used for obtaining airspace 

information, the user must be aware of any disclaimers regarding the timeliness of the 

information posted. The FAA’s U.S. NOTAM office provides current TFR information 

through DOD Internet NOTAM Service (DINS) at: 

https://www.notams.faa.gov/dinsQueryWeb/ and http://tfr.faa.gov/tfr2/list.html

7.7.1 Airspace Deconfliction 

Dispatch centers must deconflict any flight that will occur in special use airspace. 

7.8 Airspace Conflicts

Aviation personnel have a responsibility to identify and notify the Air Route Traffic Control Center 

(ARTCC) and report conflicts and incidents through the Interagency SAFECOM System to assist 

in the resolution of airspace conflicts. When a conflict or incident occurs, it may indicate a 

significant aviation safety hazard. Conflicts may include near mid-air collisions (NMAC), TFR 

intrusions, and FTA communication non-compliance. Further guidance is available in the NWCG 

Standards for Airspace Coordination, Chapter 8. 

7.8.1 Airspace Conflicts 

Any airspace conflicts that occur will be reported to the SAM as soon as possible. 

7.9 Operations Along Foreign Borders

All aircraft operations along border patrol zones require coordination with the U.S. Border Patrol. 

The Dispatch Centers with foreign border zones will have an operational plan detailing the 

coordination measures with the U.S. Border Patrol Air Marine Operations Center (AMOC). All 

pilots and aircrews will be briefed about border zone flight procedures.

7.10 Airspace Agreements – Memorandums of Understanding

When Special Use Airspace (SUAs), MTR’s, Slow Routes (SRs), or Aerial Refueling Routes 

(ARs) are located over public lands administered by BLM or in areas frequently utilized for flight 

operations (fire or non-fire), the BLM should consider instituting an agreement with the 

appropriate DOD entity that schedules the airspace. Airspace agreements provide DOD and 

local agency dispatch centers and aviation managers with a tool that shares contact information 

and defines protocols for time-critical airspace deconfliction, response coordination, and 

resolution of issues. 

 

A template and sample format are provided in the NWCG Standards for Airspace Coordination, 

Chapter 12. 
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7.10.1 Airspace Agreements-Letter of Agreement

BLM Utah maintains a Letter of Agreement (LOA) with the Headquarters, Utah Test and 

Training Range (UTTR) that includes BLM Nevada, Hill Air Force Base, and the 388 Fighter 

Wing (ACC). 

The LOA details specific requirements for BLM-controlled aircraft to enter UTTR airspace.

7.11 Emergency Security Control of Air Traffic (ESCAT)

ESCAT may be implemented due to an air defense emergency as directed by the North American 

Aerospace Defense Command (NORAD). Reference NWCG Standards for Airspace Coordination, 

Chapter 4. 
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8.0 Aviation Security – Facilities/Aircraft 

8.1 Aviation Security Policy

The policies and procedures in this chapter are intended to make the theft of BLM owned or 

contracted aircraft more difficult and time consuming and therefore an unattractive target to 

potential criminals or terrorists. The BLM security program includes the following elements:

Department of Interior Security Policy: Departmental Manuals 444-1 and 352 DM 5 set forth 

the security requirements for all DOI aviation facilities and assigned aircraft. Reference DOI 

Aviation Security Policy 352 DM 5: 

Scope and Applicability

• To the extent applicable, the policies and procedures established herein are intended to 

supplement the minimum physical security standards detailed in 444 DM 1, Appendix A. 

Nothing in this chapter reduces the requirements prescribed by 444 DM 1, Physical 

Protection and Building Security, or any other requirement established by law or authority 

as it pertains to DOI aviation operations.

• The policies and procedures established herein are applicable to all BLM aviation 

facilities and aircraft owned or controlled by the DOI.

• Contractors are solely responsible for the security of their aircraft while under the control 

of the DOI. All DOI aviation contracts will include language describing the DOI aviation 

security policies applicable to contractor operations and require contractor compliance 

with those policies.

Definitions:

The term “aircraft operations area” (AOA) means the area within an aviation facility in which 

flight-capable aircraft are present for any purpose, including but not limited to the loading or 

unloading of cargo or passengers, refueling, maintenance, parking and storage. 

The term “aviation facility” means any DOI owned or controlled real property used for aircraft 

landing and takeoff at which DOI owned or controlled aircraft are permanently based. (352 

DM5.4B)

The term “control” is used in two contexts.

• As it relates to aviation facilities, the term “control” refers to the condition existing when a 

BLM entity has authority to institute, modify or otherwise effect physical security changes 

at an aviation facility regardless of property ownership.

• As it relates to aircraft, the term “control” means “operational control” as defined in the 

Federal Aviation Regulations at 41 CFR 1.1: “Operational control with respect to a flight 

means the exercise of authority over initiating, conducting or terminating a flight.” This 

definition is independent of aircraft ownership.

The term “dual-lock method” means using a combination of two locking devices or methods to 

physically secure or disable a parked aircraft for the purpose of reducing the probability of aircraft 

theft and associated misuse by unauthorized persons.

The term “risk assessment” refers to the result of a combined threat and vulnerability 

assessment. It can generally be characterized as an analysis of the probability of serious impact 

or damage resulting from a known or postulated threat successfully exploiting on or more 

vulnerabilities
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Risk Assessment

A “risk assessment” will be conducted for each BLM aviation facility (see definition above). Each 

aviation facility risk assessment will be periodically reexamined and adjusted as necessary to 

ensure it accurately reflects current conditions. At a minimum, reexaminations shall be 

conducted and documented every 2 years.

Security Plans

Security plans will conform to the following conditions:

• The “Field Reference Guide for Aviation Security for Airport or other Aviation Facilities” 

(AAF) is intended to provide a standardized method of assessing aviation airport 

facilities. Each unit is encouraged to utilize this written document to identify the 

appropriate level of security planning needed. https://www.doi.gov/aviation/library/guides

• Individuals preparing aviation facility security plans can reference the TSA “Security 

Guidelines for General Aviation Airports” TSA Information Publication A-001, which is 

available on the TSA Website at www.tsa.gov

• The scope and depth of the aviation facility security plan should be commensurate with 

the size and operations complexity of the facility for which it is prepared.

Training

Employees involved in the control or use of aviation resources or facilities shall complete the 

appropriate level of aviation security training. (aircrew member minimum)

BLM Specific Policy/Guidance:

BLM HSPD12 Policy: https://www.nifc.gov/about-us/our-partners/blm/aviation/security 

Aviation Security Questionnaire: https://www.nifc.gov/about-us/our-partners/blm/aviation/security

8.2 USFS Facilities Security Assessments

Reserved 

8.3 USFS Security Response Actions

Reserved

8.4 General Aviation Security Awareness Programs

The BLM utilizes the AOPA Airport Watch Program for Security Awareness: 

http://www.aopa.org/airportwatch/

The Department of Homeland Security (DHS) TSA implemented a national toll-free hotline that 

the general aviation (GA) community can use to report any “out-of-the-ordinary” event or activity 

at airports. The hotline is operated by the National Response Center and centralizes reporting to 

the appropriate local, state and federal agencies. 

To report any suspicious activity at your airport- Call (866) GA-SECURE (866) 427-3287
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8.5 Cooperators Aircraft Security

Military or government agency cooperator aircraft under DOI operational control shall adhere to 

their department-specific aircraft security policies.

8.6 Aircraft Physical Security Requirements 

At any time an aircraft, controlled or owned by the DOI, is not directly attended by its assigned 

flight crew, ground crew, or government managers, it will be physically secured in a manner that 

disables the aircraft from being utilized.

Exceptions

• Military or government agency cooperator aircraft under DOI operational control. Such 

cooperator aircraft shall adhere to their department-specific aircraft security policies.

• Aircraft mechanically incapable of flight.

Security Devices: The DOI aircraft contracts specify the aircraft security measures and it is the 

contractors’ responsibility for the aircraft security. Approved security devices require using a dual 

lock method consisting of any combination of anti-theft devices attached to the aircraft for the 

sole purpose of locking flight controls, aircraft power, or directional ground movement. Pilots and 

aircrews must be diligent in pre-flight procedures to prevent engine start up with security 

measures in place. These may include any combination of the following: 

• Locking hanger doors

• Keyed Magneto, starter or master switch

• Hidden battery cut-off switches

• Throttle, mixture/fuel, fuel cut-off locks

• Control surface gust-locks; propeller locks (chain, cable, mechanical) - (airplane only)

• Locking wheel, chock or aircraft tie downs

• “Club-type” devices for control yoke

8.7 Aviation Facility Security Requirements

Security risk assessments will be performed on all BLM aviation facilities, temporary bases and 

aviation airport facilities (AAF) which meet the definition of “aviation facility”, using the 

DOI Field Security Guidelines for General Aviation. 

• Completed assessment should be housed within the unit’s aviation plan as an appendix 

or chapter.

Aviation Facility Security – Suggested Enhancements

After completing the AAF Airport Characteristics Measurement tool and determining your 

facilities total score, reference the Suggested Airport Security Enhancements template included 

within the Field Reference Guide for Aviation Security for Airport or other Aviation Facilities 

(AAF) pg. 6. 

• The total score obtained from the Airport Characteristics Measurement Tool is considered 

minimum mandatory security requirements. 

For a more in-depth list of suggested airport Security Enhancements reference TSA Information 

Publication A-001, Security Guidelines for General Aviation Airports, Appendix B: www.tsa.gov 
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Suggested area enhancement may include:

Signage

• Signage should be multi-lingual where appropriate.

Lighting 

• Lighting type and illumination levels will comply with published Illuminating Engineering 

Society (IES) standards and will not supersede standard aviation guidelines governing 

runway lighting and nighttime flight requirements.

Fencing 

• Install perimeter security fencing as needed to control access to the AOA and all other 

sensitive areas. 

• Fence height and other characteristics will comply with standard FAA guidelines where 

appropriate. Where FAA guidelines are not available, minimum fencing characteristics will 

be sufficient to meet access control needs.

Access Control

• The number of access points should be minimized, with their use and conditions regularly 

monitored.

• Any access point through a fence or other boundary should not only be able to control or 

prevent access, but also differentiate between an authorized and an unauthorized user.

• Anti-pass back, anti-piggyback and anti-tailgating systems or protocols should be 

implemented where appropriate.

• Gates when appropriate, should be constructed and installed to the same or greater 

standard of security as any adjacent fencing in order to maintain the integrity of the area. 

Pedestrian/personnel gates can be constructed using a basic padlock or designed with 

an electrical or mechanical locks or keypad/card system.

8.8 Exceptions

If facility ownership or control constraints preclude full implementation of the identified minimum 

mandatory security requirements, notification must be immediately given to the NAO in writing.

• Written notification will detail the minimum mandatory security requirements(s) which 

cannot be implemented and the circumstances preventing the implementation. A waiver 

of the requirements may be requested.

• Pending the response, the facility will comply with 352 DM 5.10, “Aircraft Physical 

Security Requirements.”

8.9 Transportation Security Administration (TSA)

BLM employees who are traveling on commercial airlines are personally responsible for 

compliance with TSA and DOT hazardous cargo regulations.
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9.0 Aviation Facilities 

9.1 General

All BLM aviation support facilities will be constructed, maintained, and operated in compliance to 

applicable regulations/direction of DOI, BLM, FAA, OSHA and lease agreements. 

9.1.1 District Standard Operating Procedure (SOP)

Each District with management responsibility for an aviation facility will produce an SOP that 

addresses the day-to-day operational procedures, security, and safety practices. 

9.2 Aviation Facilities (Permanent and Temporary)

BLM has permanent and temporary airbases managed by the districts/field offices. Permanent 

air bases include heavy airtanker and SEAT retardant bases, and airplane and 

helibase/heliport facilities with permanent or temporary fixtures that are used on a continuous 

or seasonal basis. These aircraft bases of operations include government owned or leased 

aviation facilities on federal or non-federal land where BLM has primary responsibility for 

operations, maintenance and oversight. Facility base reviews shall be conducted in 

accordance with the NWCG Standards for Helicopter Operations (NSHO), Appendix E; 

NWCG Standards for Airtanker Base Operations (SABO), Appendix M and Interagency 

Standards for Fire and Fire Aviation Operations, Chapter 18, as appropriate. 

9.3 Temporary Operations Bases

Temporary operations bases are those that are used to support short term projects and wildland 

fire. These bases can be located on federal, state, local government or private land. Permission to 

operate on the land should be obtained prior to use. Land use agreements may have to be set up 

describing payment terms, use limitations and land restoration measures. For wildland fire 

operations the NWCG Standards for Chapter 20 (20-4) describes procedures for land use 

agreements. Only procurement officials with warrant authority may enter into agreements. For nonwildland fire situations, the state/district procurement official is the point of contact for agreements.

BLM Smokejumper Bases: The BLM Smokejumpers’ primary operations bases are Fairbanks, 

Alaska, and Boise, Idaho. Each smokejumper base has multiple sub-bases that are established to 

support smokejumper operations on as-needed basis. Some sub-bases are located in BLM owned 

facilities and some are leased.

9.3.1 Temporary Bases 

Temporary bases are sites used on a temporary or intermittent basis (i.e., helibases, helispots, 

unimproved landing areas, and remote airstrips). Sites not located on BLM land must be preapproved by the landowner and appropriate BLM management. Each site should be cataloged as 

to location, description, local hazards, use procedures, agreements, and contracts. Inspections and 

maintenance are completed as necessary to meet agency safety standards. Required operating 

plans for these sites should be developed ahead of time if possible. 

9.4 Safety

Aviation facilities must comply with safety regulations described in DOI manuals, guides and 

handbooks, and the Occupational Safety and Health Administration (OSHA). Buildings, equipment 
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and aircraft operating surfaces (helibase, airplane parking and retardant base) will be inspected 

annually for safety and maintenance deficiencies, by the unit aviation manager and/or unit health 

and safety officers. 

9.5 Permanent Facility Construction Planning/Funding and Maintenance

Reference BLM Manual 9100 - Engineering

FAA Form 7480-1 - Notice for Construction, Alteration and Deactivation of Airports: Title 14 Code of Federal 

Regulations Part 157 requires all persons to notify the FAA at least 90 days before construction, 

alteration, activation, deactivation, or change to the status or use of a civil or joint-use (civil/military) 

airport. (As used herein, the term “airport” means any Landing or Takeoff Area, e.g. Airport, 

Heliport, Vertiport, Gliderport, Seaplane Base, Ultralight Flightpark, or Balloonport.)

9.6 BLM Owned/Operated Airstrips

Reference the document titled Recreational Aviation Foundation located at:

Home - Recreational Aviation Foundation (theraf.org)
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Appendix Contents

1. BLM National Aviation Organization Directory

1a. BLM UTAH Aviation Organization Directory

2. SES Flight Scheduling Guide

3. Latitude – Longitude Information

4. BLM SAFECOM Management Roles

5. OAS Aviation Program Evaluation Schedule

6. BLM Cargo Letdown Operations

7. BLM Fleet Aircraft Standard Operations Procedures

8. Acting vs. Point of Contact

9. Acronyms
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Appendix 1 - BLM National Aviation Organization Directory 

Position Name Duty Station E-Mail Office Number Cell Number

Division Chief, Aviation (FA-500) vacant Boise, ID (208) 387-5448 (208) 

Deputy Division Chief, Aviation Glen Claypool Boise, ID gclaypoo@blm.gov (208) 387-5160 (208) 859-7506

SEAT Program Manager Kristina Curtis Boise, ID kcurtis@blm.gov 208-387-5441 208-850-2780

Flight Operations Manager, vacant

Helicopter Program Manager Mike Reid Boise, ID mreid@blm.gov 208-387-5173 208-994-1623

Aviation Safety/ Training Advisor Kirk Rothwell Boise, ID mrothwell@blm.gov (208) 387-5879 (208) 914-8483

UAS Program Manager Matt Dutton Boise, ID mdutton@blm.gov (208)-387-5325 (208) 484-8031

UAS Fleet Manager Bobby Eisele Boise, ID beisele@blm.gov (801) 814-1357

UAS Specialist Jay Murgoitio Boise, ID jmurgoitio@blm.gov 208-387-5334

Air Tactical Pilot, Bravo 5 Andre Mascheroni McCall, ID amascheroni@blm.gov (208) 630-3771

Air Tactical Pilot, Bravo 4 Paul Lenmark Dillon, MT plenmark@blm.gov (406) 660-0257

Aviation Staff Assistant Andrea Vigil Boise, ID avigil@blm.gov (208) 387-5180

Air Tactical Pilot, Bravo 9 Lisa Allen Boise, ID lmallen@blm.gov (208) 387-5197 (208) 972-1677

Air Tactical Supervisor Ivan Smith Boise, ID ismith@blm.gov (208) 387-5872 (208) 859-9524

Smokejumper Pilot Bob McCormick Boise, ID rmcormick@blm.gov 907-356-5763

Smokejumper Pilot vacant

Pilot Hans Germann Boise, ID hgermann@blm.gov 208-850-1946

Developmental Pilot Chris Swisher Fairbanks, AK cswisher@blm.gov 907-370-3113

Air Tactical Program Manager Jed Johns Boise, ID jjohns@blm.gov (208) 387-5140 208-871-7535

SEAT Coordinator Angie Forbes Boise, ID aforbes@blm.gov (208) 387-5419 208-954-2072

Ramp Services Supervisor Tony Lolli Boise, ID alolli@blm.gov (208) 387-5529
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Appendix 1a - BLM Utah Aviation Organization Directory 

Position Name E-Mail Office Number

State Aviation Manager

BLM Utah

Trevor Pollock 

(detailed) tpollock@blm.gov (435)592-4919 

Unit Aviation Manager

West Desert District Kelly Rudger krudger@blm.gov (503)341-7225 

Lead Air Attack Manager

West Desert District Trevor Pollock tpollock@blm.gov (435) 592-4919 

Helicopter Crew Supervisor

West Desert District Greg Wilson gawilson@blm.gov (801) 977-4363 

Tooele Valley SEAT Base Vacant tooeleairops@gmail.com (801) 503-8337

Unit Aviation Manager

Color Country District Glenn Dietz gdietz@blm.gov (435) 590-4686 

Airtanker Base 

Manager/AUM

Cedar City Air Base

Courtney 

Christensen ckchristensen@blm.gov (435) 865-4620 

Cedar City Air Base Base Operations (435) 865-4623

Lead ATGS

Color Country District Skyler Dalton rdalton@blm.gov (435) 865-4645 

Fire Management Officer / 

Unit Aviation Manager 

Canyon Country District 

Clark Maughan cmaughan@blm.gov (435) 259-1851 

Helicopter Crew Supervisor

Canyon Country District John Shaffer jshaffer@blm.gov (435) 259-1882 

Fire Management Officer / 

UAM Green River District Chris Deets cadeets@blm.gov (435) 781-4444 
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Appendix 2 - SES Flight Scheduling Guide

These flights are typically requested through the SAM however some of the responsibilities may 

be delegated to UAMs (refer to applicable State Aviation Plan for specifics).

The OAS-110 will be utilized as the parent or cover document for additional pages of 

documentation. Additional information regarding SES flight scheduling to include OPM-7 and 

OAS-110 Form is located at: https://www.doi.gov/aviation/library/opm

1. Gather information needed to develop the flight plan and OAS-110. 

• Determine the nature of flight. Is it-point-to-point, mission, special use, etc. 

• Determine the proposed itinerary/schedule requirements.

• Determine any special needs: security, dual-pilot crew, etc. 

• Assess and consider any travel schedule time limitations for SES employees and time 

needed to accomplish objectives. 

• Names, passenger and baggage weights, salaries. (If only annual salaries are 

available, multiply that number by 1.2 and divide by 2087 to derive the approximate 

hourly salary.)

2. Notify solicitor of impending request (courtesy call) at least a week to ten days prior to the 

proposed flight.

3. Conduct research and document cost estimate for the elements in each of these three 

options. 

a. Scheduled commercial air carrier (not applicable for mission flights)

• Use only contract travel agency quotes to determine airfare estimates.

• Does itinerary meet time frame requirements?

• Cost of airfare and booking fees

• Cost of rental car from airport to meeting location

• Additional lodging and per diem costs incurred if traveling by airline

• Total employee salaries for time spent in travel status. (Add one hour of 

preflight airport time to the flight time, plus time spent driving rental car to 

location where fleet or charter aircraft would have otherwise flown to any 

locations not served by airlines.)

b. Fleet Aircraft 

• Confirm if fleet aircraft are even available within reasonable distance.

• Include ferry flight time and standby costs with passenger transport flight time 

estimate.

• Document total salaries for employee’s time spent flying on fleet aircraft.

c. Charter Operators

• Use only established contract vendors with carded pilots and aircraft capable 

of carrying the required passenger manifest and weight.

• Compare two or more competing vendors using the AQD-91 form; maintain 

documentation in local files and use the best-value vendor in the OAS-110

cost analysis.

• Include ferry flight costs, guaranteed time, and standby rates (if applicable) in 

cost estimate.
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4. Determine the cost for each of the three options above and document on the OAS-110. 

Document and forward an explanation why any of the three options was not considered 

possible or reasonable. Examples:

• Proposed flight is a reconnaissance mission that can’t be performed by scheduled air 

carriers.

• Scheduled airline service cannot meet SES employee time constraints or schedule, or 

would incur additional days in travel status. (Forward itinerary and additional salaries 

that would be incurred to illustrate infeasibility.)

5. Forward the completed OAS-110 and attached documentation to the Solicitor through the 

SAM, or with courtesy copy sent to the SAM (refer to specific State Aviation policy). 

6. Be sure a qualified Flight Manager is assigned to tend to the safety requirements and 

administrative details associated with the flight.

7. A Project Aviation Safety Plan (PASP) should be developed for all SES Mission Flights, 

even those deemed to be “one-time, non-complex.” A 9400-1a (or equivalent) may be 

used as a supplemental manifest and flight tracking device on point-to-point flights.

8. The SAM will report any SES flight hours to the NAO twice each year (October 1 and 

April 1).
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Appendix 3 – Latitude/ Longitude Information

If coordinates are wrong...

• Risk/danger/liability goes up

• Calculations become erroneous (weight/distance/fuel ratios)

• People can’t find the “right” spot 

• Data goes onto maps in the wrong place

• We look bad as an organization, a unit, an individual

• Contractors/pilots become angry/confused/frustrated

and loss trust in our dispatching system.

Latitude

• Parallel east-west lines 

• Measures 90o North and 90o South of equator

Longitude 

• Lines run south to north.

• Measures east and west of the prime meridian

• Lines converge at North and South poles

Common Formats

Notation

Degrees o 

Minutes ’ 

Seconds ” 

Decimal . 

Hemisphere N, S, E, W or - 

On-line Calculators for converting between Formats:

https://rechneronline.de/geo-coordinates/

http://www.calculatorcat.com/latitude_longitude.phtml

 

GPS Datums

• Datums define the origin and orientation of latitude/longitude lines

• Describing a place by lat/long is not good enough. The datum must also be stated.

• Changing the datum changes the lat/long of a point on the surface of the Earth

• There are hundreds of different Datums, agencies use different Datums.

• Referencing lat/long coordinates to the wrong datum can result in position errors of 

hundreds of meters

Format Example

Decimal Degrees

(DDD.DDDDD o) 

64.84052o N by 147.60437o W

Degrees and Decimal 

Minutes (DDD o MM.MMM’) 

64o 50.431’ N by W 147o

36.262’ W

Degrees, Minutes and 

Seconds (DDD o MM’ SS.S”) 

64o 50’ 25.5” N by W 147o 36’ 

15.5” W
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Know your agency’s standard Format and Datum

• BLM Aviation (Degrees and Decimal Minutes, WGS84)

• BLM GIS (Various)

• TFRs (Degrees, Minutes and Seconds, WGS84). US NOTAM OFFICE FORMAT 

ddmmssN/dddmmssW

• BLM Fire (Degrees and Decimal Minutes, WGS84) 

• FAA Temporary Flight Restrictions (Degrees, Minutes and Seconds). US NOTAM 

OFFICE FORMAT ddmmssN/dddmmssW

Remember...

• Use only ONE period/decimal point when writing a latitude or longitude in Decimal 

Degrees, or Degrees, Decimal Minutes. 

• Do NOT use periods/decimal points for degrees or minutes when writing a latitude or 

longitude in Degrees, Minutes and Seconds

• There can NEVER be more than 60 seconds in Degrees, Minutes and Seconds format

• Do NOT mix formats

• Know and use proper Datum
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Appendix 4 - BLM SAFECOM Management Roles

POSITION AUTHORITY RESPONSIBILITIES CRITICAL NOTES

Individual Submission Fills out the SAFECOM form, completing all required fields including initial 

determination of Operational Control. Completes the Original Text in both 

the Narrative and Corrective Action fields. Consults with mission personnel 

prior to submitting electronically to OAS, courtesy notification to UAM.

Fill out completely and accurately. 

Report only the facts. Narratives should 

be brief and concise.

BLM UAM Submission

E-Mail 

Notification

Corrective 

Actions

If only a hardcopy has been submitted, submits electronically to OAS.

Receives e-mail notification of all initial, modified and completed 

SAFECOMs identifying their BLM Field Office as having operational control. 

Takes corrective action at the local level and describes these actions in the 

Public Text area of the Corrective Action field. Include your Job Title (do not 

enter personal information)

X

Provide feedback to person submitting 

(unless anonymous)

Must treat all corrective action 

descriptions as if they were public.

BLM State 

Aviation 

Manager

E-Mail 

Notification

Corrective 

Actions

Modify Actions

Operational 

Control

Category

Make Public

Receives e-mail notification of all initial, corrective action, modified and 

completed SAFECOMs identifying BLM operational control within their State.

Review all information. May take and document additional corrective actions.

Authority to change all SAFECOM information (except for name of the 

submitter and the original narrative).

Make final determination of the Agency, State/Region and Field Unit that has 

Operational Control.

Select or edit the appropriate category to classify the SAFECOM. 

Copies Original Text into the Public Text area for both the Narrative and 

Corrective Action fields. Sanitizes the Public Text. Makes the SAFECOM

“Public” (if overly sensitive, consult with NAO before making public)

Coordinate with UAM.

X 

Coordinate with UAM. Verify and amend 

all info for accuracy.

Determines who will receive e-mail 

notification.

Multiple categories possible.

Ensures all Public Text is sanitized in 

Narrative & Corrective Action fields prior 

to making public. SAM determines who 

makes “public” within their state.

BLM 

National 

Aviation 

Safety 

Advisor

E-Mail 

Notification

Corrective 

Actions

Modify Actions

Make Public

Completion

Distribution

Designates 

Users

Out of Agency

Receives e-mail notification of all initial, corrective action, modified and 

completed SAFECOMs nationwide that identify BLM operational control.

Takes additional corrective actions, if necessary, and documents on the 

SAFECOM. 

Authority to change all SAFECOM information (except for name of submitter 

and the original narrative).

Has the authority to sanitize information and make the SAFECOM “public” (if 

not already done at the State level). Coordinates with OAS. 

Has the authority to make the SAFECOM “complete”. 

Distributes all “Public” BLM SAFECOMs to BLM SAMs and Other Agencies.

Authority to identify all BLM users and their appropriate permission levels. 

Must notify OAS of additional users/changes/updates.

Authorized to review other agency “Public” SAFECOMs. Read Only!

Coordinate with SAM.

Coordinate with SAM

X 

Ensures all Public Text is sanitized in 

Narrative & Corrective Action fields prior 

to making public.

X 

Coordinates with OAS. 

Coordinates with SAM and OAS. 

X 

Elevated 

Safecoms

All Actions

Make Public

OAS or NAO recommends SAFECOM be elevated. NAO-Safety retains 

control of Elevated SAFECOM and coordinates with SAM for proposed 

action. Coordination will take place with the SAM to gather detailed 

documentation.

NAO-Safety will make SAFECOM public with concurrence of SAM. Pictures, 

reports and sensitive material may or may not be made public but will be 

accessible to those with modify access.

Action may include lessons learned 

write up, safety alert etc. Important to 

follow up with Contracting Officer 

through the chain of command if aircraft 

or personnel are not meeting contract 

specifications.

Elevated SAFECOMs will not be made 

“Public” until investigation has been 

completed.
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Appendix 5 - OAS Aviation Program Evaluation Schedule

2022 – Idaho, Montana, Eastern States

2023 – Alaska, Arizona

2024 – New Mexico, Wyoming

2025 – Colorado, California

2026 – NAO, Nevada

2027 – Oregon/ Washington, Utah

2028 – Idaho, Montana, Eastern States
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Appendix 6 - BLM Cargo Letdown Operations

1.1 Purpose

Cargo Letdown is a procedure used to lower cargo out of a hovering helicopter to the ground 

with the use of a lowering line and rappel anchor. This procedure is used by helitack programs to 

get needed equipment and supplies to the ground when conventional methods are not the most 

efficient option. 

1.2 Approval

National BLM approval is required to host a cargo letdown program. Requests for approval are 

initiated by a state office to the National Aviation Office (NAO) with final approval from the 

Division Chief, Aviation.

NAO approval may allow for both internal and external (off the hook) cargo letdown operations. 

Initial approval will be based upon indicated need and limited to one field season. Subsequent 

conditional approval must be requested after the initial field season and validated based on 

proper utilization and justification of continued need. Approved cargo letdown programs will be 

re-evaluated in conjunction with new helicopter contract solicitations. Several administrative 

procedures need to be addressed as part of the request for approval:

• Initial justification to include nomination of Helicopter Cargo Letdown Spotter Trainee 

candidates (HCLS (T)).

• Request for Contract Modification from NAO to Contracting Officer (CO) in order to:

o Provide for a contractor purchased cargo letdown anchor. Costs to the contractor 

would be recovered in an adjusted Daily Availability rate negotiated by the CO.

o Add additional “Special Pilot Requirements for Cargo Letdown” language.

• Cargo Letdown Operations Plan. This plan is a supplement to the Helibase Operations 

Plan. The Cargo Letdown plan should describe all aspects of the letdown program to 

include:

o Risk Management mitigation measures: Cargo Let Down (CLD) Risk Assessment 

/ Hazard Identification (CLD RA) 

o Decision Matrix (under what parameters will this operation be conducted).

o Detailed operational procedures.

o Detailed equipment and configuration descriptions.

o Equipment certification/inspection/retirement intervals and documentation.

o Personnel training, experience and proficiency requirements and record-keeping

o Letdown mission documentation and record-keeping.

o Year-end statistical data on form “BLM Annual Helitack Data”. The form is 

available for download on the BLM NAO website.

o Completed copies of the BLM Cargo Letdown Spotter Trainee Qualification 

Record will be sent to the BLM State Aviation Manager and BLM Helicopter 

Program Manager annually.
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The NAO will provide assistance in arranging for Pilot and HCLS(T) certification as well as help 

with obtaining required equipment. 

1.3 Cargo Letdown Spotter Eligibility

Eligibility for BLM Cargo Letdown Spotter is limited to qualified Helicopter Managers on Exclusive 

Use Helitack crews at the squad leader level or above. In addition, CLD Spotters must meet the 

following requirements:

• Meet the prerequisite experience, training, and currency requirements outlined in the 

Interagency Standards for Fire and Fire Aviation Operations “Exclusive Use Fire 

Helicopter Position Requisites” for the position they encumber.

• Any deviation from these requirements must be approved in writing by the State Aviation 

Manager with a courtesy notification to the NAO Helicopter Program Manager.

1.3.1 Cargo Letdown Spotter Initial Training

Initial cargo letdown training shall be conducted by a DOI Office of Aviation Services (OAS) 

training specialist or a fully qualified Spotter (HERS/HCLS). The DOI OAS training specialist or 

cargo/rappel check Spotter is responsible for conducting the final initial check ride and 

certification of a HCLS(T). 

When coordinating for and during training it is important that clear communications are 

maintained between the designee trainers (if utilized), the DOI OAS training specialist and the 

BLM Helicopter Program Manager.

Each component of training (tower, mock-up, and live helicopter) must allow sufficient time to 

satisfy the training requirements; this may vary based on the number of and progression of 

students. Requesting unit and trainees must be prepared to commit to the necessary time frames 

and associated expense when entering into agreement with Trainers.

This training is performance based and trainees will only move forward as specific training 

targets are met. It must be understood that there is the potential that a selected trainee may not 

be qualified due to inadequate performance. 

Tower training (if utilized) can be generic. Mock-ups and live cargo letdown training shall be 

helicopter model specific to the aircraft utilized by the trainee and will follow the current model 

specific cargo letdown procedures in this appendix.

All trainees will utilize the attached “BLM Cargo Letdown Spotter Trainee Qualification Record” to 

ensure all aspects of training are complete. This record shall include further training 

recommendations and a clear picture of the trainee’s current level of competence.

1.3.2 Cargo Letdown Spotter Refresher Training 

Each year a Spotter must attend or instruct an annual helicopter cargo letdown training, as well 

as complete deployment of three loads of cargo from the helicopter to the satisfaction of the 

appropriate agency certifying official. 
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Subsequent re-qualification certification may be conducted by a qualified Spotter (USFS or DOI). 

Typical terrain shall be utilized for at least one of the three loads.

1.3.3 Cargo Letdown Spotter Proficiency

In order to maintain Spotter proficiency Individuals must make at least one cargo letdown spot 

every 14 days. If a helicopter letdown is not completed within 14 days, the Spotter may use a 

simulation. If a simulation is used to maintain proficiency during the 14-day period, an airborne 

deployment must be done in the following 14-day period.

1.4 Cargo Letdown Check Spotter

To be considered for approval as Helicopter Cargo Letdown Check Spotter (HCCS), the trainee 

must:

• Be nominated by the State Aviation Manager to the National Helicopter Program 

Manager.

• Be a current helitack supervisor or assistant on an exclusive use helitack crew.

• Must have been a qualified spotter for two (2) years

• Must have assisted in training of at least two (2) cargo letdown spotters

• Meet the prerequisite experience, training, and currency requirements outlined in the 

Interagency Standards for Fire and Fire Aviation Operations “Exclusive Use Fire 

Helicopter Position Requisites”.

• Subsequent yearly self-certification is subject the HCCS completing annual recurrent 

training with State Aviation Manager concurrence.

Annual Check Spotter Currency

• Each Cargo Letdown check spotter must maintain currency and proficiency as a cargo 

letdown spotter

1.5 Pilot Experience, Training, and Currency Requirements

Pilots must meet all the following requirements:

• Meet the appropriate requirements of the procurement document to include having 

logged additional experience as pilot-in-command as follows:

o 50 hours -- Total hours in make, model and series offered.

o 25 hours -- Rappel, cargo letdown or long line requiring precision placement, last 

12 months.

• Annually attend a cargo letdown training/refresher training session. This training must be 

conducted and documented by a qualified Spotter and will include:

o Briefing and familiarization on letdown bracket and hard points for the specific 

model.

o Seating arrangements for cargo and Spotters.

o Cargo placement/location and deployment sequence and method.

o Exit procedures and sequence.

o Perform a minimum of six ground mockups in the aircraft model to be used, 

including rigging the aircraft for cargo letdown mission and deploying cargo.

o Briefing on any peculiarities of the specific model.
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o Demonstrate ability to operate helicopter during three cargo letdown sequences.

o Demonstrate ability to work with Spotter. 

Upon meeting the above requirements, the pilot may be approved for helicopter cargo letdown 

operations by an OAS or USFS helicopter inspector pilot. The pilot must maintain currency in 

helicopter cargo letdown at the same frequency required of the Spotter (every 14 days). If 

currency is not maintained a mockup and proficiency flight must be completed prior to any actual 

operational mission.

The helicopter must meet the requirements of the departmental manual and the procurement 

document.

1.6 Cargo Letdown Equipment

Any equipment that a unit wishes to test or incorporate into cargo letdown must be 

reviewed by the BLM representative to the Interagency Helicopter Rappel Unit (i.e., use 

of rope, throw bag, and lowering device). 

NOTE: Any equipment item with time life criteria of 10 years must be removed from service once 

it meets that time limitation. If manufacture date stamps for equipment become illegible, 

damaged, or lost, they will be replaced and then documented in the applicable equipment log. 

Replacement tags must correspond with the original manufacture date in the equipment log. Any 

equipment with a time life limitation that cannot be age verified must be removed. Equipment 

removed from service will be disposed of in accordance with Bureau of Land Management 

Personal Property Management Manual 1520.

1.6.1 Gloves

The Sullivan PV or PVG, PMI GL2200x rappel glove, and the Metolius climbing 3⁄4 finger glove 

are approved for cargo letdown operation. The Metolius glove shall only be used in conjunction 

with a flight glove.

1.6.2 Spotter Harness

Cargo Letdown Spotters will utilize a harness the meets the requirements of the ALSE Handbook 

that has a frontal attachment point (i.e., Yates 388, or ARS 338 Heli Ops Harness) during all 

helicopter cargo letdown and tower operations. The harness shall be issued and tagged with a 

unique identifier that corresponds to an in-service date. Harness tags from the manufacturer may 

be used. 

The Harness will be inspected in accordance with manufacturers requirements. In addition: 

• The Spotter harness must be inspected by the user prior to operation.

• Inspect stitching and webbing for abrasion, wear or other damage.

• Check leg strap buckles, chest strap buckles, l D-rings and Cam Buckle adjusters for 

correct adjustment and function.

• Check connectors for correct function.

1.6.3 Adjustable Spotter Lanyard

The adjustable lanyard is the interface between the spotter harness attachment point and 

approved helicopter hard point or anchor attachment point. Commercially produced adjustable 

lanyards must be utilized that are certified to National Fire Protection Association (NFPA) 1983, 

EN, or American National Standards Institute (ANSI Z359). Examples: Petzl® Grillon Plus, 
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Petzl® Grillon International®, Yates® 571-DMM Rappel Master Adjustable Lanyard w/Shock 

Stop and DMM Captive Eye Carabiners.

The harness lanyard must adjust to prevent the attachment point from extending past the door 

plane of the helicopter. A connector is attached to the free end of the spotter lanyard connecting 

to an STC or manufacturer approved helicopter hard point, tower hard point, or other approved 

tether attachment point.

When a lanyard is adjusted to allow access beyond the door plane, it is considered a reportable 

event. The SAFECOM system will be used for facilitated learning purposes.

Inspection:

• Lanyard is inspected with spotter harness prior to operation.

• Inspect stitching and webbing for abrasion, wear or other damage.

• Metal hardware should be free from cracks, dings, or other damage.

1.6.4 Cargo Letdown Spotter Tether Attachment

Cargo Letdown Spotter Tether (Lanyard) Attachment(s) will be manufactured in accordance with 

drawing # MTDC-946, or the Air Rescue Systems® Primary Anchor. The spotter tether 

attachment will secure the spotter harness tether to the aircraft. The spotter tether attachment 

will be installed in the aircraft according to model specific requirements.

Inspection:

• Inspected by a Spotter prior to each use.

• Inspect stitching and webbing for abrasion, wear or other damage.

• Metal adjusters and attachment ring should be free from cracks, dings, or other damage.

• Meets lifetime criteria in accordance with manufacturer’s specifications.

1.6.5 Carabiners and Connectors

Carabiners and connectors used in cargo letdown operations will meet the requirements of 

National Fire Protection Association (NFPA) 1983 General Use, 2012 or most recent edition, or 

American National Standards Institute (ANSI) Z359.12 2009, or most recent edition. 

Exception: Carabiners specifically identified by an FAA Supplemental Type Certificate (STC) for 

direct attachment to an anchor.

Inspection:

• Inspect in accordance with manufactures data sheet

• Inspect to be sure that gates and locking mechanism function properly. If gate becomes 

sticky, remove from service.

• Look for abrasion, burrs, or rough edges. If there is any visual indication that raises 

question, retire it.

• When using for cargo letdown operations make certain that gates are locked when in use 

and that tension is not on gate.

• Are not dropped on ground or hard surface. Rough handling is avoided.

• Kept clean.

• Inspected by a Spotter prior to each use.
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1.6.6 Knife / Knife Sheaths

Spotters are required to have a hook knife, with lanyard, readily accessible for emergency use. 

The Raptor® knife or Gerber®Vital Zip with Seber Blade is required for use by cargo letdown 

Spotters. The Spotter Raptor® knife must be enclosed within the MTDC rappel Spotter Raptor® 

sheath (MTDC drawing # 1042) and attached to the Spotter harness in the manner shown in 

rappel bulletin 051005.

Certain STC’s for rappel anchor installations require an additional Raptor knife be installed inside 

the aircraft.

Inspection:

• Knife sheaths are to be inspected with any harness inspection.

• Knives shall be inspected annually or prior to being installed on a harness. Ensure knives 

used for rappel have properly installed blades.

• Knife blades must be changed after any use. 

• Handle/body of knife should be free from damage, screws should be tight.

• The sheath should be in good condition.

• Ensure the lanyard is stowed and attached correctly.

• Pull snap(s) should close/open with enough resistance to prevent inadvertent opening.

1.6.7 Rappel Plate Anchors

Rappel anchors are evaluated for use by OAS for DOI. Each helicopter model will be evaluated 

for anchor hard points and design to determine the proper rappel bracket or brackets that may be 

used.

Inspection:

• Rappel Anchor inspection will occur in accordance with the applicable STC, continuing 

airworthiness instructions, or manufacturers standards in the flight manual or 

maintenance manual. In addition, an annual inspection shall also be conducted.

• The designer or manufacturer of the anchor is responsible for developing maintenance 

inspection criteria, which ensures the continued airworthiness of the anchor. The owner 

of the anchor is responsible for ensuring that the inspection(s) is conducted. Prior to each 

use, the rappel anchor will be visually inspected by the Spotter for general condition and 

documented on the daily diary.

• Additional information regarding existing rappel anchors is available from MTDC.

1.6.8 Figure 8 with ears

For BLM cargo letdown operations, the steel or aluminum CMC rescue 8 with ears is the 

approved letdown device. 

Inspection:

• Inspect in accordance with manufactures data sheet
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• Inspect for grooves developing or flaking occurring in aluminum figure 8's. When a groove 

develops beyond the anodized surface of the aluminum figure 8, wear will rapidly occur. If 

the groove is beyond 1/16-inch deep, the figure 8 must be retired. 

• Inspect the figure 8 for aluminum flaking. The flaking develops rough edges that could 

cause excessive wear on the line. If flaking is evident, remove the figure 8 from service. 

Although the acquisition cost is higher than other models, steel figure 8's have proven 

more durable and service life is considerably longer than aluminum. However, steel may 

cause heat damage more easily because it does not dissipate heat as readily as 

aluminum.

• Inspect for cracks or breaks. If cracks are evident, retire figure 8.

• Figure 8’s must be inspected by a Spotter prior to each use.

• Take care to avoid rough handling; do not drag or drop on ground and keep the device 

clean.

1.6.9 Cargo Letdown Line

To maintain even wear and maximize each lines useful life, line ends will be rotated after each 

use. To track line use, each end shall be marked A or B.

Let-down lines are available in lengths of 250ft or 300 ft. Both let-down lines shall conform to MilW-5625K Webbing, Textile, Nylon, Tubular, 3⁄4”. Webbing conforming to this standard has a 

minimum breaking strength of 2300lbs.

Let-down lines 250 feet in length will be of white tubular nylon webbing and conform to drawing 

#MTDC-983.

Let-down lines of 300 ft. will be of yellow tubular nylon webbing and conform to drawing #MTDC983.

Accordion packs will be constructed as to easily identify a 250 ft. let-down line from a 300 ft. letdown line. Accordion packs for 250 ft. let-down lines will be constructed of white cotton duck 

cloth, and accordion packs for 300 ft. let-down lines will be made from white cotton duck cloth 

with yellow seam tape. 

To further identify accordion packs, 1-inch stencils will be used to mark the outside surface of 

accordion packs with the length of let-down line to be used with each size accordion pack. 250 ft. 

Accordion Packs will conform to drawing #MTDC-974 and 300 ft Accordion Packs will conform to 

drawing number #MTDC-1037. Both lines will be packed in accordance with the Wildland Fire 

Helicopter Rappel Cargo Letdown Accordion Pack video produced by MTDC. Edge Protection 

may be necessary along helicopter door edge or helicopter skids to prevent abrasion of the line.

• 250-foot line: White 3⁄4” tubular nylon webbing, dyed appropriately, with stenciled 

accordion pack.

• 300-foot line: Yellow 3⁄4’ tubular nylon webbing, dyed appropriately, with stenciled 

accordion pack
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Inspection:

• Let-down lines will be inspected for wear and burns after cargo deployment, and ends 

reversed for the next let-down sequence.

• Inspect stitching and webbing for abrasion, wear, cuts, chemical contamination or other 

damage.

Marking:

• A twenty-five-foot section from each end of the let-down lines shall be clearly marked in 

red and a ten-foot section in the center of the line should be marked with a contrasting 

color. 

• Use only Rit dye to mark lines.

1.6.10 Let-Down Containers

Bags are to be manufactured with high strength abrasion-resistant materials. The attachment 

points on the bag must be reinforced to ensure there is not a failure during deployment. Sources 

for approved cargo letdown containers are also listed on the USFS rappel website. Maximum 

allowable suspended weight per internal cargo let down container shall be 125 lbs. Approved 

cargo let down containers shall pass a static strength test with no failure or ruptured stitches 

when loaded to a minimum weight of 468.75 lbs. (safety factor of 3.75 to 1).

Internal cargo letdown containers shall consist of the following:

• Cardboard box with harness, the cardboard box shall consist of double wall construction 

and shall be certified by manufacturer as having passed Edge Crush Test of 71 pounds 

(71-ECT). Cargo boxes must be girded with an approved box harness for deployment.

• The box harness and attachment hardware shall have a minimum tensile strength of 

1125 lbs.

• Metolius style haul bag.

• Large Klamath Bag.

• Small Klamath Bag.

External cargo letdown containers shall consist of the following: 

• Tuna Net (NFES #000795).

• Metolius style haul bag.

• Large Klamath Bag.

• Small Klamath Bag.

The maximum weight and the minimum weight for the large and small Klamath bags will be 

stenciled on the container with 3-inch letters in a high contrast color. 

The limitations will be illustrated on opposing sides of the container.

Maximum weight and minimum weight for external cargo deployment containers.

• Large Klamath Bag

o Maximum Weight: 300 lbs.

o Minimum Weight: 150 lbs.

• Small Klamath Bag

o Maximum Weight: 300 lbs.
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o Minimum Weight: 80 lbs.

• Tuna Net

o Maximum Weight: 300 lbs.

o Minimum Weight: 40 lbs.

Bags and other containers should be frequently inspected and not used if damaged.

During flight testing of external containers, loads became unstable above 60 knots indicated 

airspeed. External load operations shall be conducted at an airspeed that ensures the load 

remain stable.

1.6.11 External Cargo Deployment (Break-away strap and Cargo Strap)

For external cargo deployment the break-away strap which is the connecting line between the 

external load or cargo strap and cargo let down line shall conform to Mil-W-5625K and be 1” 

tubular nylon. The minimum breaking strength of 1” tubular is 4000 lbs. External cargo 

operations shall use the model specific Break Away and Cargo Straps manufactured in 

accordance with drawing # MTDC 980 Helicopter Rappel External Cargo Break Away strap and 

drawing # MTDC 982 Helicopter Rappel External Cargo Strap.

Inspection:

• Equipment will be inspected prior to use by a qualified Spotter. 

• Inspect stitching and webbing for abrasion, wear, cuts, chemical contamination or other 

damage.

1.6.12 Figure 8 Extender

Relocates the Figure 8 away from an aircraft hardpoint. Figure 8 extender conforms to MTDC 

Drawing # 1040.

Inspection:

• Equipment will be inspected prior to use by a qualified Spotter. 

• Inspect stitching and webbing for abrasion, wear, cuts, chemical contamination or other 

damage.

1.6.13 External Cargo Swivel

All external cargo-letdown loads must be attached to the helicopter with an approved swivel.

The Petzl P58 S, P58 L and swivels approved for cargo in the ISHO are the approved swivels for 

external cargo letdown operations.

Inspection:

• Inspect in accordance with manufactures data sheet,

• Equipment will be inspected prior to use by a qualified Spotter. 

• Spinning action of the swivel,

• Physical damage

• Inspection criteria as outlined in chapter 9 of NSHO approved equipment. 

1.7 Cargo Letdown Documentation 

For fire operations, copies of certifying and recertifying documentation will be maintained in
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individual permanent records and forwarded to the Incident Qualifications Certification Systems 

(IQCS) Account Manager. All documentation logs are official documents and will be kept 

electronically or in hard copy format.

1.7.1 Cargo Letdown Spotter

The Helicopter Cargo Letdown Spotter Qualification Record will document each individual step in 

the training. Competency at each level of the training must be demonstrated by the trainee 

before the Spotter will permit advancement to the next step. Each Spotter will maintain a record 

of training, proficiency and operational cargo letdowns in a unit log or other format. 

1.7.2 Equipment Logs

All equipment requiring documentation will be assigned a unique identification number. The 

number will be retired with the piece of equipment. The following equipment must have a log 

assigned: Spotter Harness, Cargo Letdown Line, and Rappel Tower Anchor.

1.7.3 Spotter Harness

Harness will be inspected annually and recorded. Any deficiencies during pre-use inspections 

and/or repairs or component replacement will be noted on the harness log or the electronic 

equivalent.

1.7.4 Cargo Letdown Line

All cargo letdown line use must be documented. After inspection, any irregularities will be

noted. Use the Letdown Line Log or electronic equivalent.

1.7.5 Rappel Tower Anchor

Use and inspection of rappel tower anchors must be documented. The forms will provide at a 

minimum the information listed below.

• Date put in service 

• IDnumber

• Remarks/problems

• Inspector’s name/date inspected

1.8 Internal Cargo Deployment Procedures

All training and actual deployment missions will use the following steps and procedures. The 

intent is to standardize and maintain continuity between units.

 

1.8.1 Pre-Flight Duties for Cargo Only Missions

• Prior to departure, the pilot(s) and involved personnel shall receive a briefing on mission 

objectives, communications, known hazards, and emergency procedures.

• Load calculations and manifests complete and posted.

• Spotter puts on harness, ensures raptor knife is attached to harness.

• Spotter completes necessary pre-flight inspections.

 

1.8.2 Equipment Check of Spotter 

Prior to flight, the Spotter must receive a Spotter equipment check. When ground personnel are 

unavailable, the Spotter shall have the pilot perform this check. Positive communication between 

the Spotter and pilot must occur to ensure Spotter has attached their tether to an approved hard 

point.

• Flight Helmet
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o Good Condition - no cracks or damage, avionics in place

o Eye protection 

o Chin strap secured, adjusted to fit snuggly, with no loose ends

• Nomex Shirt/Flight Suit

o Good condition, shirt tucked in collar up, buttoned to the top, flight suit fully zipped 

up

o Sleeves rolled down covering arms (no holes, clean & tight at wrist)

• Gloves

o Gloves in good condition, fastened with no loose ends, and free of pitch or 

contaminants

• Harness – Front Side

o Risers

 Visible webbing & stitching in good condition

 No twists, buckles secured with no cracks, keepers in place

o Chest Strap

 Positioned mid-chest 

 Buckled & snuggly fit

o Leg Straps

 Buckles attached, no fabric caught

 Visible webbing & stitching in good condition

 No twists, snug fit, loose ends secured, keepers in place

o Raptor Knife

 Secured in sheath on left riser

 Horn facing to left side

 Lanyard stowed

• Nomex & Boots

o Nomex pants/flight suit in good condition, no Velcro showing

o Pant cuffs over approved boots

Indicate Spotter to turn around with a tap on the left shoulder. 

• Spotter’s Back Side

o Helmet in good condition

o Collar up

o Harness - visible webbing & stitching in good condition with no twists

o Spotter tether attached to dorsal O-Ring through double pass adjustor and tacked 

when using Miller Harness and MTDC specified tethers. Extendable tether 

stowed, all snaps in place, or; Spotter tether attached to front or waist O-ring 

when utilizing a Yates 388 or ARS 338 Heli Ops Harness front or waist 

attachment

o Ensure carabiner or connector is in place at end of tether

o Buckles & loose ends secured

o Nomex shirt, pants or flight suit in good condition, no Velcro showing

o Pant cuffs over approved boots

Tap on shoulder to indicate Spotter to turn around.

• Exchange thumbs-up - “YOU ARE O.K., I AGREE”
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1.8.3 Rigging and Loading Cargo

• Spotter will configure helicopter to meet the needs of the specific cargo mission.

• Rig cargo with carabiners and secure in helicopter. Cargo should be secured in 

accordance with model specific configurations in Appendix B

• Check cargo delivery equipment to ensure proper number of letdown lines, extra 

carabiners, and figure 8 are available and secured in accessible location.

• Spotter visually inspects anchor. (See Chapter 3, Rappel Anchor Inspection)

• Spotter boards aircraft, connects tether, plugs into avionics, and secures seatbelt.

• Spotter tells pilot, “Tether attached OK to depart,” 

• Pilot Responds “Tether attached, departing.”

1.8.4 Pre-Cargo Delivery Sequence

• Pilot(s) flies a reconnaissance of the area to look for hazards and works with Spotter to 

select an appropriate cargo delivery site.

• Contact appropriate flight following authority (ATGS, HLCO, dispatch, etc.) prior to 

commencing the cargo operation. Spotter communicates with flight following authority & 

pilot regarding number of loads to be deployed.

• Inform ground personnel to stay clear of cargo during deployment. 

• Adjust radios as needed to ensure pilot and Spotter communication will not be 

compromised by excessive radio chatter. Radios must remain on and dialed to the 

appropriate flight following frequency. 

• Where possible helicopter should maintain at least 50 ft. clearance above any obstacles 

before starting a cargo operation.

• If this is not possible and helicopter must descend below the canopy, helicopter will 

operate within an opening no less than 1 1/2 times the main rotor diameter (e.g., an 

aircraft with a 36 ft. main rotor diameter would require a 54 ft. diameter opening). 

• Before starting cargo operations, A HOGE Power assurance check is accomplished at an 

altitude comparable to the cargo site or greater. A positive rate of climb must be 

established without exceeding aircraft limitations. Pilot states “Hover established, positive 

rate of climb, power is good.”

• Spotter responds “Power is good”

• Spotter activates hot mic if not done already

• If not performed on the ground, Spotter rigs Figure 8 with cargo letdown line and attaches 

figure 8

o If using overhead bracket on a type III helicopter connect two (2) carabiners in 

anchor bracket, barrel down, gate facing inboard. Connect one (1) carabiner to 

the upper carabiners, barrel down, gate facing aft. 

o If using floor bracket connect one (1) carabiner in anchor bracket, (barrel inboard, 

gate facing aft) with extender strap and one (1) additional carabiner attached to 

figure 8. 

• Cargo letdown pack must be connected to a hard point.
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• Spotter removes restraining straps from cargo, ensure remaining cargo is secure, and 

positions cargo in doorway. Spotter relays to pilot when rigging is complete.

• Aircraft with sliding doors in the closed position will follow the procedures in the following 

three (3) bullets

o Pilot states to Spotter “Clear to open door(s)”.

o Spotter states to pilot, “Opening aircraft door(s)”. Once Spotter has opened 

aircraft door, Spotter states to pilot “Door open and locked”.

• Spotter finalizes proper position over cargo site. Using pilot’s perspective (left, right, 

forward, back, and up or down relative to altitude above the ground.) 

1.8.5 Cargo Deployment Sequence

• Spotter will communicate with pilot regarding adequate main and tail rotor clearance, 

power assessments, and cargo spot status throughout the cargo operation. Using pilot’s 

perspective (left, right, forward, back, and up or down relative to altitude above the 

ground) 

• Spotter states to pilot, “Cargo ready. How is the power?”

• Pilot “Powers good send cargo”. 

• Spotter states to pilot, “Sending Cargo” then eases cargo out the door, over the flight step 

and skid (Bell 206L4 cargo goes between skids).

• Begin lowering cargo with positive control of letdown line; do not allow un-arrested 

descent of cargo. Keep pilot informed of actions and progress of cargo descent:

o “Cargo out the door”

o “Cargo halfway down”

o “Cargo on the ground”

• When cargo is on the ground, unhook figure 8 from carabiner/Anchor and remove 

letdown line. Hold slack in line to prevent billowing and unhook letdown line bag from 

hard point. Wrap excess letdown line around bag and throw clear of aircraft.

• Inform pilot if more cargo is to be lowered. Pilot/Spotter will determine whether to hold 

hover or orbit area until cargo is ready for subsequent deployment. 

• When cargo deployment is complete Spotter states to pilot, “Lines are away, clear to 

depart.”

• Pilot responds “Lines away, clear to depart”.

• Spotter closes doors (if necessary), returns to seat and fastens seatbelt. 

• Radio returned to normal operational mode and flight following authority is informed that 

cargo operation has been completed. 

1.9 External Cargo Deployment Procedures

All training and actual deployment missions will use the following steps and procedures. The 

intent is to standardize and maintain continuity between units.

1.9.1 Pre-Flight Duties for Cargo Only Missions

• Prior to departure, the pilot(s) and involved personnel shall receive a briefing on mission 

objectives, communications, known hazards, and emergency procedures.

• Load calculations and manifests complete and posted.
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• Spotter puts on harness, ensures safety knife is attached to harness.

• Spotter completes necessary pre-flight inspections.

• Prior to flight, the Spotter must receive a Spotter equipment check (see Internal Cargo 

Deployment Procedures above). When ground personnel are unavailable, the Spotter

shall have the pilot perform this check. Positive communication between the Spotter and 

pilot must occur to ensure Spotter has attached their tether to an approved hard point. 

 

1.9.2 Rigging and Loading Cargo 

• Loaded cargo container is set up in the front of the helicopter.

• Attach one end of the cargo strap to the cargo container and the other end to the swivel

o External cargo must be attached to the belly hook, utilizing approved equipment. 

• Spotter performs all appropriate hook checks, attaches single hard loop end of 

breakaway strap to the top end of the swivel hardware, and then connects swivel system 

and cargo to helicopter cargo hook.

• Rig letdown line through figure 8 and attach a carabiner to the hard loop on the free end 

of the line.

• Anchor

o Overhead Anchor: Attach the rigged figure 8 to the overhead anchor carabiners 

with a third carabiner barrel down, gate facing aft. Once complete, pull the free 

end of the line and carabiner down to the floor and attach to the Velcro® loop on 

the breakaway strap. Spotter must secure the breakaway strap attached to the 

carabiner during flight. (Add drawing or a photo)

o Floor anchor: Attach the rigged figure 8 with extender strap to the forward attach 

point on of the floor anchor, typically the opposite side of the pilot. Attach locking 

carabiner on rigged letdown line to the Velcro® loop on the breakaway strap. 

• Lock off letdown line on figure 8.

• Cargo letdown pack must be connected to an appropriate hard point.

• Spotter connects tether, plugs into avionics, completes necessary external cargo checks, 

boards aircraft, and secures seatbelt.

• Spotter tells pilot, “Tether attached, load on the hook, OK to depart,” 

• Pilot Responds “Tether attached, load on the hook, departing.”

1.9.3 Pre-Cargo Delivery Sequence

• Pilot(s) flies a reconnaissance of the area to look for hazards and works with Spotter to 

select an appropriate cargo delivery site.

• Contact appropriate flight following authority (ATGS, HLCO, dispatch, etc.) prior to 

commencing the cargo operation. Spotter communicates with flight following authority & 

pilot regarding number of loads to be deployed.

• Inform ground personnel to stay clear of cargo during deployment. 

• Adjust radios as needed to ensure pilot and Spotter communication will not be 

compromised by excessive radio chatter. Radios must remain on and dialed to the 

appropriate flight following frequency. 

• Where possible helicopter should maintain at least 50ft. clearance above any obstacles 

before starting a cargo operation.
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• If this is not possible and helicopter must descend below the canopy, helicopter will 

operate within an opening no less than 1 1/2 times the main rotor diameter (e.g., an 

aircraft with a 36 ft. main rotor diameter would require a 54 ft. diameter opening). 

• Before starting cargo operations, A HOGE Power check is accomplished at an altitude 

comparable to the cargo site or greater. A Positive rate of climb must be established 

without exceeding aircraft limitations. Pilot states “hover established, positive rate of 

climb, power is good.”

• Spotter responds ”Power is good”

• Spotter activates hot mic if not done already

• Spotter states to pilot “Removing seatbelt” and “moving into position”. (Some Spotters 

may elect to remain in the seat with seatbelt fastened).

• Spotter attaches hard loop on the breakaway strap and ensures carabiner is locked. 

Spotter states to pilot “Hard Loop Connected” Pilot confirms “Hard Loop Connected.”

• Spotter unlocks the figure 8 and ensures the carabiner is clear of the skid.

• Spotter finalizes proper position over cargo site. Using pilot’s perspective (left, right, 

forward, back, and up or down relative to altitude above the ground.)

1.9.4 Cargo Delivery Sequence

• Spotter will communicate with pilot regarding adequate main and tail rotor clearance, 

power assessments, and cargo spot status throughout the cargo operation. Using pilot’s 

perspective (left, right, forward, back, and up or down relative to altitude above the 

ground).

• Spotter states to pilot, “Cargo is ready for deployment on your count.”

• Pilot gives a three (3) count and releases cargo from belly hook.

• Spotter begins lowering cargo with positive control of letdown line; do not allow unarrested descent of cargo. Keep pilot informed of actions and progress of cargo descent:

o “Cargo away”

o “Cargo halfway down”

o “Cargo on the ground”

• When cargo is on the ground, unhook figure 8 from carabiner/anchor and remove letdown 

line. Hold slack in line to prevent billowing and unhook letdown line bag from hard point.

Wrap excess letdown line around bag and throw clear of aircraft.

• When cargo deployment is complete Spotter states to pilot, “Lines are away, clear to 

depart.”

• Pilot responds “Lines away, clear to depart”.

• Spotter closes doors (if necessary), returns to seat and fastens seatbelt. 

• Radio returned to normal operational mode and flight following authority is informed that 

cargo operation has been completed 

1.10 Cargo Letdown Emergency Procedures

There are many circumstances that can constitute an in-flight emergency. Pilots and Spotters 

must understand that the consequences of an emergency change significantly once cargo has 

been deployed. It is extremely important for a pilot and Spotter to have a firm understanding of 

the situation and discuss up front as many circumstances as possible prior to operations.

“Emergency procedures” are defined as the standard established procedures used to respond to 
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a situation, serious in nature, developing suddenly or unexpectedly, and demanding immediate 

action. In the cargo delivery environment, clear and concise communication culminating in a 

coordinated response between the Spotter and pilot is critical to a successful outcome. There are 

two (2) basic categories of emergencies:

1. Those that require an immediate response:

There are a limited number of emergencies that fall into this category. In the cargo delivery 

environment these emergencies are characterized by a need to depart the hover without delay. 

In this type of emergency, the possibility of affecting a positive outcome will be impacted by the 

ability to jettison lines quickly.

Examples of possible emergencies that require an immediate response:

• Engine Failure

• Tail Rotor Failure

• Hard over of controls

• Engine over speed/driveshaft failure

• Compressor Stall (Single engine)

• Governor Failure Low Side (Twin Engine)

• Governor Failure (Single Engine)

2. Those that permit a delayed response: 

There are any numbers of events, typically mechanical or environmental, that fall into this 

category. In the cargo delivery environment, these events are characterized by an ability to delay 

the departure from the hover. In events of this nature there is typically time to complete a cargo 

sequence prior to departing the hover.

Caution: These procedures may not require immediate action and responses can vary in time 

from seconds to minutes. Examples of possible events that may permit a delayed response:

• Transmission/Engine/Tail Rotor Gear Box Chip Light

• Hydraulic Failure

• Oil temp/Oil pressure light

• Hydraulic temp or pressure light

• Unknown Master Caution

• Fire light (require pilot check of controls and for fire on board)

• Stuck pedal

• Fuel control or governor failure high side (Twin Engine)

• Electrical failure

• Fuel/air filter clog

• Fuel pump failure

• Decrease in rotor RPM

• Compressor Stall (twin engine)

• Severe up or down drafts
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1.10.1 Cargo Letdown Emergency Procedures: Internal Cargo

 

Challenge/Response Communications - Immediate Response Emergency 

Pilot States “Abort, Abort” 

• Spotter: 

o If cargo is still secure:

 Spotter states “Clear”

 Immediately take seat and fasten seatbelt

 Aircraft will depart immediately and pilot will comply with Rotorcraft Flight 

Manual direction.

o If the cargo process has begun and the cargo has been unsecured:

 Spotter states “Clearing cargo” and: 

o If cargo is still in the aircraft: 

 Re-secure cargo or Cut line directly above cargo container and Jettison 

cargo out open door.

 Spotter states “Clear”

 Take seat and buckle-up.

o If cargo has been delivered outside the aircraft:

 Cut line 

 Spotter states “Clear” when the cargo container has cleared the aircraft

 Take seat and buckle-up.

NOTE: The “Abort, Abort ...” and the subsequent actions taken by the pilot and Spotter

will occur almost simultaneously. Pilot, will attempt to gain forward flight, if possible, 

which will require that the Spotter clear the cargo without hesitation. The pilot is not 

expected to wait for the “Clear” from the Spotter before taking action to appropriately 

respond to the emergency. Any failure to immediately clear the aircraft of cargo and line 

may pose a threat to the aircraft and personnel onboard.

Challenge and Response Communications - Delayed Response Emergency 

When experiencing this type of emergency, “EXPEDITE, EXPEDITE” is intended as the initial 

alert for the crew communicating that the cargo deployment must be curtailed due to an aircraft 

malfunction or environmental condition. Communication shall not be limited and pilot should 

advise the crew of the status of the aircraft and the intended duration of the flight.

Unnecessary delays should be avoided due to the critical nature of the flight profile. The only 

time there should be any delay is during the cargo deployment sequence. If there is to be a 

delay, the Spotter should advise the pilot as to the amount of time needed to get the cargo on the 

ground and cut line. 

Events of a mechanical nature require termination of the cargo mission until such problem(s) can 

be resolved. An event of this nature requires that the pilot announce the problem, describe the 

problem and inform the Spotter of the actions required to address the event. The ensuing 

discussion between pilot and Spotter will determine a course of action and the time available.
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Pilot states “Expedite, Expedite.” 

• Spotter

o If cargo is still secure: 

 Spotter states “Clear”

 Immediately take seat and buckle-up.

 Aircraft will depart immediately and pilot will comply with Rotorcraft Flight 

Manual direction.

o If cargo has been unsecured but not delivered outside the aircraft:

 Spotter states “Clear” 

 Secure the cargo as quickly as possible

 Take seat and buckle seatbelt.

o If you are in mid sequence (cargo has been delivered past the skids) 

 Continuation of the cargo delivery may be permissible if circumstances 

warrant. 

 Once cargo is on the ground the Spotter will cut the line freeing the aircraft 

for immediate departure and compliance with RFM direction

Events of an environmental nature may be resolved by waiting for the event to subside or 

relocating to an alternate cargo site. An event of this nature requires that the pilot inform the 

Spotter of the actions required to address the event. The ensuing discussion between pilot and 

Spotter will determine a course of action and whether relocation is necessary.

• If relocation is not required:

o Once the pilot and Spotter concur that the event is no longer of concern cargo 

operations can resume.

• If relocation is required: Pilot states “Expedite, Expedite.” 

o If cargo is still secure: 

 Spotter states “Clear”

 Immediately take seat and buckle-up.

 Aircraft will depart immediately and pilot will comply with Rotorcraft Flight 

Manual direction.

o If cargo has been unsecured but not delivered outside the aircraft:

 Spotter states “Clear” 

 Secure the cargo as a quickly as possible

 Take seat and buckle seatbelt.

 If you are in mid sequence (cargo has been delivered past the skids) 

o Continuation of the cargo delivery may be permissible if circumstances warrant. 

o Once cargo is on the ground the Spotter will cut the line freeing the aircraft for 

immediate departure and compliance with Rotorcraft Flight Manual direction.

1.10.2 Cargo Letdown Emergency Procedures: External Cargo

Challenge/Response Communications - Immediate Response Emergency

Pilot states “Abort, Abort”
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• Cargo still secure on the belly hook and cargo process has not yet commenced while 

aircraft is in a hover or in forward flight with breakaway strap hooked “Soft”.

o Pilot jettisons external cargo from the aircraft

o Spotter states “Clear” and;

o Immediately take seat and fasten seatbelt 

• If cargo process has started, break away strap is hooked “hard” w/ figure 8 locked off and 

cargo is still on the hook.

o Spotter states “Cutting Line” 

o Spotter cuts line below the figure 8

o Spotter states “Clear- Jettison Load” and;

o Immediately take seat and fasten seatbelt 

• If cargo process has started break away strap is hooked “hard” w/ figure 8 unlocked and 

cargo still on the belly hook

o Spotter states “Cutting Line” 

o Spotter cuts line below the figure 8

o Spotter states “Clear- Jettison Load” and;

o Immediately take seat and fastens seatbelt

• If the cargo process has begun and the cargo has been released off the belly hook.

o Spotter states “Cutting Line”

o Spotter cuts line below the figure 8 

o Spotter state “Clear” when the letdown line has cleared the aircraft and;

o Immediately take seat and buckle-up. 

NOTE: The “Abort, Abort ...” and the subsequent actions taken by the pilot and Spotter will occur 

almost simultaneously. Pilot, will attempt to gain forward flight, if possible, which will require that 

the Spotter clear the cargo without hesitation. The pilot is not expected to wait for the “Clear” 

from the Spotter before taking action to appropriately respond to the emergency. Any failure to 

immediately clear the aircraft of cargo and line may pose a threat to the aircraft and personnel 

onboard.

Challenge/Response Communications - Delayed Response Emergency 

When experiencing this type of emergency, “Expedite, Expedite” is intended as the initial alert for 

the crew communicating that the cargo deployment must be curtailed due to an aircraft 

malfunction or environmental condition. Communication shall not be limited and pilot should 

advise the crew of the status of the aircraft and the intended duration of the flight.

Unnecessary delays should be avoided due to the critical nature of the flight profile. The only 

time there should be any delay is during the cargo deployment sequence. If there is to be a 

delay, the Spotter should advise the pilot as to the amount of time needed to get the cargo on the 

ground and cut line. 

Events of a mechanical nature require termination of the cargo mission until such problem(s) can 

be resolved. An event of this nature requires that the pilot announce the problem, describe the 

problem and inform the Spotter of the actions required to address the event. The ensuing 

discussion between pilot and Spotter will determine a course of action and the time available.
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Pilot states: “Expedite, Expedite.”

• If cargo is still secure on the belly hook and cargo process has not yet commenced while 

aircraft is in a hover or in forward flight with breakaway strap hooked “Soft”.

o Spotter states “Clear” Cargo can be jettisoned at pilot discretion 

o Spotter immediately takes seat and fastens seat belt.

o Aircraft will depart immediately and pilot will comply with Rotorcraft Flight Manual 

direction.

• If cargo process has started, break away strap is hooked “hard” w/ figure 8 locked off and 

cargo is still on the hook. 

o Spotter states “Going to soft loop”

o Spotter disconnects breakaway strap from carabiner and connects carabiner to 

soft loop. Spotter states “Clear- to Jettison Load” at pilot discretion

o Spotter immediately takes seat and fastens seatbelt.

• If cargo process has started break away strap is hooked “hard” w/ figure 8 unlocked and 

cargo still on the belly hook

o Spotter states “Clearing Breakaway Strap” 

o Spotter disconnects Breakaway strap from carabineer or cuts letdown line below 

the figure 8

o Spotter states “Clear to Jettison Load” at pilot discretion 

o Spotter immediately takes seat and fastens seatbelt 

• If the cargo process has begun and the cargo has been released off the belly hook.

o Continuation of the cargo delivery may be permissible if circumstances warrant. 

o Once cargo is on the ground the Spotter will cut the line below the figure 8 freeing 

the aircraft for immediate departure and compliance with RFM direction.

o Spotter states “Clear” when the letdown line has cleared the aircraft 

o Spotter immediately takes seat and buckles up. 

Events of an environmental nature may be resolved by waiting for the event to subside or 

relocating to an alternate cargo site. An event of this nature requires that the pilot inform the 

Spotter of the actions required to address the event. The ensuing discussion between pilot and 

Spotter will determine a course of action and whether relocation is necessary.

• If relocation is not required:

o Once the pilot and Spotter concur that the event is no longer of concern cargo 

operations can resume.

• If relocation is required Pilot states “Expedite, Expedite”.

o Cargo still secure on the belly hook and cargo process has not yet commenced 

while aircraft is in a hover or in forward flight with breakaway strap hooked “Soft”.

 Spotter states “Clear” Cargo can be jettisoned at pilot discretion 

 Spotter immediately takes seat and fastens seatbelt.

 Aircraft will depart immediately and pilot will comply with Rotorcraft Flight 

Manual direction.

o If cargo process has started, break away strap is hooked “hard” w/ figure 8 locked 

off and cargo is still on the hook. 

 Spotter states “Going to soft loop” 
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 Spotter disconnects breakaway strap from carabiner and connects carabiner 

to soft loop. Spotter states “Clear- to Jettison Load” at pilot discretion 

 Spotter immediately takes seat and fastens seatbelt.

o If cargo process has started break away strap is hooked “hard” w/ figure 8 

unlocked and cargo still on the belly hook

 Spotter states “Clearing Breakaway Strap” 

 Spotter disconnects Breakaway strap from carabineer or cuts letdown line 

below the figure 8

 Spotter states “Clear to Jettison Load” at pilot discretion 

 Spotter immediately takes seat and fastens seatbelt.

o If the cargo process has begun and the cargo has been released off the belly 

hook. 

 Continuation of the cargo delivery may be permissible if circumstances 

warrant. 

 Once cargo is on the ground the Spotter will cut the line below the figure 8 

freeing the aircraft for immediate departure and compliance with Rotorcraft 

Flight Manual direction.

 Spotter states “Clear” when the letdown line has cleared the aircraft 

 Spotter immediately takes seat and fastens seatbelt.

1.11 Cargo Letdown Activities in Support of Extended Attack or Large Fire Operations 

Integration of cargo letdown activities into complex airspace associated with extended attack and 

large fire operations necessitates risk assessment and operational planning in order to ensure 

the safety of aircraft and ground personnel. 

While working on extended attack and large fire incidents where cargo letdown operations are 

planned (medical response, IA within the incident response zone, division requests, line 

resupply, proficiency, etc.), the following conditions should be met: 

• Identified in the Incident Action Plan in the ICS-220 and the ICS-204 for the location 

where the cargo letdown operation is planned to occur. 

• Reviewed by the highest level aviation position assigned. 

• Completed operational risk assessment and briefing. 

• Coordinated with the helibase manager prior to conducting operations at the helibase. 

Costs associated with routine proficiency operations and/or cargo letdown will be the 

responsibility of the agency contracting the helicopter.

1.12 Cargo Letdown Training

Objectives

• Describe the function of all cargo letdown equipment 

• Demonstrate proper cargo letdown configuration

• Demonstrate proper cargo letdown procedures without error
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• Demonstrate effective communications with pilot 

Key Points 

• Gather cargo letdown equipment 

• Reference procedures, Challenge and Response in the Interagency Helicopter Rappel 

Guide (IHRG), Appendix B 

• Pilot should be present during this phase of the training 

• Utilize BLM Cargo Letdown Trainee Qualification Record

Lesson Outline 

Ground Training 

• Review cargo letdown procedures 

o Familiarize trainee with equipment 

o Review applicable portions of IHRG

• Familiarize trainee with Spotter equipment checks and Spotter “buddy check.” 

o Stress that the Spotter is responsible to ensure all equipment is in good condition 

and properly fitted 

• Cargo letdown training should be accomplished utilizing a Cargo Letdown tower in 

addition to helicopter mock-ups, but utilizing helicopter mock-ups as the sole means of 

ground training is acceptable. 

• Demonstrate anchor inspection. 

• Demonstrate placement and securing of cargo. 

• Demonstrate pre-flight checks, e.g., Spotter equipment check, hook checks, etc.

• Demonstrate cargo configuration procedures. 

• Demonstrate cargo letdown procedures, including Spotter and pilot communications, and 

emergency procedures. 

• Trainee will perform the following until instructor deems competency is accomplished 

(minimum of three (3) complete cycles without procedural error):

o Anchor inspection

o Secure of cargo

o Cargo letdown procedures 

o Spotter and pilot communications

o Emergency procedures

Helicopter Deployment

• Under the supervision of a qualified Spotter, trainee will inspect equipment, prepare cargo 

load, configure the helicopter and deploy a minimum of ten cargo letdown cycles, without 

procedural error, at low, medium, and high heights. Five (5) of these deployments will be 

in typical terrain. Final evaluation will be completed by a Check Spotter. 

• Should at any point during live cargo deployment the trainee makes repetitive procedural 

errors, the instructor will return the trainee to ground training for additional training.
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BLM Cargo Letdown Trainee Qualification Record

INSTRUCTIONS FOR COMPLETING QUALIFICATION RECORDS

Each requirement or task for each qualification record shall be completed under the direct supervision of 

a qualified HERS/HCLS and signed and dated by the evaluating Spotter Trainer. Comments should be 

included in the space provided to ensure appropriate documentation of performance and to provide 

feedback to trainees. The number of evaluations of each task is not limited to the number of signature 

lines provided within the Evaluator/Date column.

CARGO LETDOWN TRAINEE:

TRAINEE’S NAME DUTY STATION PHONE NUMBER

TRAINEE RECOMMENDED BY:

NAME TITLE PHONE NUMBER

QUALIFICATION RECORD INITINATED BY:

NAME TITLE PHONE NUMBER

Helicopter Make/Model:

Notes:

SIGNATURE DATE
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Position: CARGO LETDOWN SPOTTER Trainee:

TASK: CARGO LETDOWN GROUND TRAINING Evaluator Date Comments

1 Review IHRG Chapters 3,4,7, and Appendix B

2 Equipment inspections procedures

3 Documentation of equipment

4 Discuss model specific procedures

5 Review Go-No Go checklist & Discuss mission 

specific Risk Mgt.

6 Discuss CRM and Spotter directions with pilot

7 Discuss emergency procedures with pilot 

present

TASK: CARGO LETDOWN SIMULATOR (optional) Evaluator Date Comments

1 Tower, simulator briefing

2 Cabin configuration and rigging (model specific)

3 Challenge and Response with pilot

4 Proper equipment checks

5. Cargo configuration

6 Cargo equipment orientation

7 Rigging and deploying cargo

8 Maintain visual on cargo

9 Emergency procedures

TASK: CARGO LETDOWN MOCK-UPS Evaluator Date Comments

1 Proper Briefing crew /pilot

2 Proper rigging /model specific

3 Verbalization with pilot

4 Proper equipment checks

5 Cargo configuration

6 Cargo equipment orientation

7 Maintain control during deployment
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Position: CARGO LETDOWN SPOTTER Trainee:

8 Maintain focus and control of mission

9 Emergency procedures

TASK: CARGO LETDOWN INITIAL LIVE 

HELICOPTER

Evaluator Date Comments

1 Proper rigging /model specific

2 Proper Briefing crew /pilot

3 Proper Equipment Checks

4 Proper Verbalization

5 Ensure power check completed 

6 

Select adequate cargo letdown site and alternate 

sites and notify ground resources of mission 

(Stay Clear)

7 Maintain aircraft and rotor clearance throughout 

sequence

8 Maintain visual on cargo letdown line and cargo

9 Maintain controlled decent of load to the ground

10 Maintain focus and control of mission

TASK: CARGO LETDOWN CHECKRIDE Evaluator Date Comments

1 Configure helicopter with proper Cargo rigging 

and perform appropriate equipment checks

2 Maintain communication with appropriate flight 

following authority

3 Identify flight hazards

4 Identity adequate cargo letdown and alternate 

emergency sites

5 Assess helicopter performance capabilities at 

local temp. and altitude, perform power check

6 Assist pilot to position helicopter over cargo 

letdown site

7 Deploy cargo using appropriate verbiage with 

pilot
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Position: CARGO LETDOWN SPOTTER Trainee:

8 Maintain clearance of cargo from all obstacles

9 Maintain aircraft and rotor clearance throughout 

cargo sequence

10 Deploy cargo maintaining controlled decent at all 

times

11

Establish communication with firefighters on the 

ground. Report to appropriate flight following 

authority

12 Debrief with HERS/HCCS

TASK: ASSIST IN INSTRUCTION OF CARGO 

LETDOWN TRAINING

Evaluator Date Comments

BASE NAME:

1

2

3

TASK: CHECKRIDE PROCEDURAL ERROR FREE 

CYCLES

Evaluator Date Comments

1 Low < 75’ AGL

2 Low < 75’ AGL

3 Medium 75’ to 150’ AGL

4 Medium 75’ to 150’ AGL

5 High Above 150” AGL

6 Low - Typical Terrain

7 Medium - Typical Terrain

8 Medium - Typical Terrain

9 High - Typical Terrain

10 High - Typical Terrain
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CARGO LETDOWN SPOTTER TRAINEE APPROVAL RECOMMENDATION

Additional Cargo Letdown Training Recommended

No Yes Date

Recommendation:

Spotter Trainer Name Signature Date

Successful Completion of Cargo Letdown Training 

No Yes Date

Annual Recertification

Annual Recertification

Annual Recertification

Annual Recertification

 Date Certifying Official

Comments:
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Check Spotter Name Signature Date

BLM Cargo Letdown Decision Matrix

Mission Conditions Yes No

Is this CLD mission necessary? (Pilot and Spotter in agreement)

Is this a time critical mission?

Site Conditions

Does vegetation exceed limitations?

Is there a helispot location nearby that could be utilized instead?

Do the main and tail rotors have adequate clearance from terrain and trees?

Is terrain conducive to receiving cargo? (Too steep? Etc.)

Aircraft/Pilot

Are pilot and aircraft approved for the mission?

Pilot completed pre-flight checks?

Intercom and radio communications set and checked?

Load calculation completed for the CLD deployment site?

Remove or secure all loose items within the aircraft?

Pilot briefed for the intended mission and communication procedures?

Weather/Time

Are winds within an acceptable range to perform a CLD operation?

Is there enough time to complete the operation before sunset (pumpkin time)?

Spotter

Is the Spotter qualified and proficient to perform this operation?

Preflight walk around check of helicopter performed by Spotter?

Spotter checks completed?

Spotter harness and tether in working order and installed correctly?

Spotter PPE utilized?

Completed a pre-deployment briefing to all parties involved?

Completed an emergency procedures briefing with the pilot?

Equipment 

Is all CLD equipment approved and in good working order?

Internal cargo rigged and checked by Spotter?

Operations

All personnel briefed for the operation, emergency plan in place?

Ground personnel briefed? (Remain away from site)

Communication with pilot is good?

High hover power check is good, positive rate of climb established. Power is Good?

Completed By:

CLD Operation Approved By:
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BLM Cargo Letdown GAR Risk Model

Operation: Scheduled Date: 

Objective(s): 

Supervision Circle the number as appropriate

Supervisor has perfect knowledge about the 

mission, personnel, capabilities and 

limitations, and is able to apply the 

appropriate control to minimize risk 

<1 2 3 4 5 6 

7 8 9 10>

Supervisor has little knowledge about the 

mission, personnel, capabilities and limitations, 

and lacks skill, knowledge or ability to apply the 

appropriate control to minimize risk.

Planning

There is a well-designed plan that is 

reviewed and revised as needed to meet the 

demands for safety and efficiency and to 

account for adaptation. Time is well 

managed.

<1 2 3 4 5 6 

7 8 9 10>

There is no plan or the plan doesn’t address 

many current adaptations made in response of 

demands for efficiency. Time constraints have a 

strong effect on ability to plan.

Contingency Resources

Reliable alternative equipment and 

personnel are available, easily accessed 

and informed about the mission 

requirements 

<1 2 3 4 5 6 

7 8 9 10>

The outcome depends on the equipment and 

personnel assigned completing the mission 

perfectly. Failure is not an option 

Communication

Interpersonal communications are clear and 

there is a high level of trust in the 

organization. Adequate personnel and 

technology are available to relay information 

accurately to those who make the decisions

<1 2 3 4 5 6 

7 8 9 10>

There is low trust in the organization or the 

personnel/communication equipment is 

unreliable based on the expected needs for the 

mission.

Team Selection

Multiple personnel with skill, knowledge and 

ability are available to fulfill the requirements 

of the mission. Selection and preparation 

are done well in advance so there is plenty 

of time for personnel to get personal and job 

related demands addressed.

<1 2 3 4 5 6 

7 8 9 10>

Only one person is available and the success of 

the mission depends on that person juggling 

many responsibilities to squeeze this mission 

into the work schedule. Additional time will be 

donated to keep up with the workload
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Team Fitness

Personnel are trained, proficient, healthy, 

and rested prior to starting the mission. 

Personal issues are addressed and little 

external stress is being exerted.

<1 2 3 4 5 6 

7 8 9 10>

Personnel lack one or more critical component 

in their training. These persons have been 

squeezing in many additional duties as 

assigned distracting them from their proficiency 

or personal life.

Environment

Weather and visibility are conducive to the 

best possible chance for success in the 

mission. Operational tempo is appropriate 

for the mission

<1 2 3 4 5 6 

7 8 9 10>

Winds are unpredictable, temperature is 

extreme, low ceilings and visibilities, 

precipitation, sun angle creates strong 

shadows, etc. Mission tempo is too low or high.

Mission Complexity

A single agency is involved with personnel 

from the same unit who regularly work 

together. Mission is straight forward and 

covered by standard operating procedures.

<1 2 3 4 5 6 

7 8 9 10>

Multiple agencies are involved in a mission that 

defies definition or has ever been attempted. 

Personnel are new to each other and come 

from different cultures. Many leaders are 

emerging and working toward different 

objectives.

Mission Total

Benefit Statement:

GAR Assessment Completed by: 

Operation Approved by: Title:

Date:

GREEN ZONE(1-35) AMBER ZONE(36-60) RED ZONE( 61-80)
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BLM Risk Assessment for Cargo Letdown 

BLM RISK ASSESSMENT 

MATRIX FOR CARGO 

LETDOWN HAZARD PROBABILITY

Frequent Probable Occasional Remote Improbable

A B C D E

EFFECT

Catastrophic I High(4) Medium

Critical II Serious(3) Medium

Marginal III Serious Medium(2)

Negligible IV Medium Low(1)

Assignment: Internal Cargo Let-Down Date: 2009

Pre-Mitigation hazards rate out as: Medium (2)

Describe Hazard: Probability

(A-E)

Effect

(I-IV)

Risk

Level

1. Aircraft Performance, allowable weight limits E I Med (2)

2. Unsecured items E I Med (2)

3. Mechanical failure E I Med (2)

4. Equipment malfunction E I Med (2)

5. Environmental-hot, high, gusty winds C II Serious 

(3)

6. Unqualified personnel E II Low (1)

Mitigation Controls:

Post-Mitigation hazards rate out as: Low (1)

Probability

(A-E)

Effect

(I-IV)

Risk

Level

1. Aircraft Performance – use HOGE performance 

charts, proper fuel load, c/g calculation, load calc 

complete, manifest complete/correct

E II Low (1)

2. Unsecured items—secure loose items, clear aircraft of 

unnecessary items, double check

E II Low (1)

3. Mechanical failure—power checks complete, 

emergency procedures known and followed, follow 

IHRG, qualified mechanic

E II Low (1)

4. Equipment malfunction—complete log book as per 

IHRG, inspect equip as per IHRG complete Spotter

checks 

E II Low (1)

5. Environmental—OGE power check, check weather 

forecast, identify/utilize alternate sites

D III Low (1)

6. Unqualified personnel—check pilot card, CLD Spotter

carded and proficient

E III Low (1)

Operation Approved by: Title: Date:
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BLM Cargo Letdown Carabiner Log

ID#: Date Put Into Service: Date Retired: 

Inspection/Use 

Date:

Inspector Signature Remarks/Problems
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BLM Cargo Letdown Harness Log

CLD Spotter Issued To: 

ID#: Date Put Into Service: Date Retired: 

Inspection/Use 

Date:

Inspector Signature Remarks/Problems
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BLM Cargo Letdown Line Log

ID#: Date Put Into Service: Date Retired: 

Number of Prior Uses: 

 

Date Spotter Height End Inspection 

Date

Inspector 

Signature

Remarks/Problems
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BLM Cargo Letdown Mission Log 

Date Operator Mission Cargo 

type/ 

weight

# of 

Letdowns

Carabiner Let 

down 

Line

Harness Figure 

8 

Notes
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Appendix 7 - BLM Fleet Aircraft Standard Operations Procedures 

The Bureau of Land Management currently operates seven fleet aircraft, N49SJ, N190PE, 

N700FW, N618, N162GC, N437CC and N32PX. The following procedures will be utilized for all 

BLM fleet aircraft. 

Administration

Aircraft 

N49SJ, N190PE, N32PX, N700FW, N618, N162GC, and N437CC are DOI owned aircraft 

operated by the BLM. N49SJ, N618, N162GC and N190PE are Boise based and maintenance is 

managed through OAS Headquarters in Boise ID. N32PX, N700FW and N437CC are Alaska 

based and maintenance is managed through Alaska Region OAS in Anchorage.

N49SJ – DE Havilland DHC-6-300 Twin Otter

BLM NAO maintains overall management responsibility. The aircraft is assigned to the Boise 

Smokejumpers. 

N618 and N162GC – Beechcraft Super King Air B200

BLM NAO maintains overall management responsibility. The aircraft is assigned to the National 

Aviation Office.

N190PE – Pilatus PC-12

BLM NAO maintains overall management responsibility. The aircraft is assigned to Alaska Fire 

Service a portion of the year and Boise NAO the balance of that year.

• N190PE core use period will be mid-April through mid-September as dictated by 

conditions. 

• The Aircraft will transition to Alaska as negotiated with AFS and the BLM National Flight 

Operations Manager. That will usually occur on or around mid-April depending upon 

anticipated needs.

• The Aircraft will transition to Boise from Alaska when negotiated by AFS and the NAO 

Flight Operations Manager. 

• Funding for the transition to Boise will be done under a resource order or as designated 

by the NAO Flight Operations Manager. 

N700FW – Quest Kodiak K-100

BLM NAO maintains overall management responsibility. The aircraft is assigned to Alaska Fire 

Service a portion of the year and Boise NAO the balance of that year.

• N700FW core use period will be mid-April through mid-September as dictated by 

conditions. 

• The Aircraft will transition to Alaska as negotiated with AFS and the BLM National Flight 

Operations Manager. That will usually occur on or around mid-April depending upon 

anticipated needs.

• The Aircraft will transition to Boise from Alaska when negotiated by AFS and the NAO 

Flight Operations Manager.

Funding for the transition to Boise will be done under a resource order or as designated by the 

NAO Flight Operations Manager.

N32PX – Cessna U206F

The BLM Alaska-Office of Law Enforcement and Security will have primary use of the aircraft 

through the calendar year flown by OAS carded BLM-AK law enforcement pilots. The 
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management of the aircraft will fall under the State Aviation Office with mission management 

under ADO and Anchorage Interagency Dispatch Center. 

 

N437CC – Cub Crafters CC-18-180

The BLM Alaska-Office of Law Enforcement and Security will have primary use of the aircraft 

through the calendar year flown by OAS carded BLM-AK law enforcement pilots. The 

management of the aircraft will fall under the State Aviation Office with mission management 

under FDO and Anchorage Interagency Dispatch Center. 

Pilots

Pilots seeking to be qualified in BLM aircraft will be approved through the NAO and must attend 

an approved simulator training course in that aircraft type. If no simulator training is available, a 

training plan will be developed to meet the training needs of the Pilot and approved by the NAO.

Staffing

BLM aircraft are staffed to meet the appropriate mission as denoted below. 

Lower 48 Staffing

• N49SJ: Primary staffing will be provided by FA-500. During the fire season the goal is 

that the aircraft is staffed 7 days a week. 

• N190PE, N700FW: Primary staffing will be provided by BLM Alaska during the core 

operational use.

• N618 and N162GC: Primary staffing will be provided by the BLM NAO.

• N437CC: N/A

• N32PX: N/A

• The Temporary Duty Assignment for the Alaska pilot while in the L48 will allow travel to 

the domicile or equivalent at the end of a 27 day period. 

• Outside of the core use period the NAO Flight Operations Manager will prescribe staffing 

levels with available pilots. 

Alaska Staffing

• N190PE, N700FW: The aircraft will be staffed on a 12 on, 2 off schedule during the 

Alaska use period. Days off will be established so as to not coincide with the scheduled 

days off of other logistics aircraft.

• N32PX: The aircraft will be staffed to meet the needs of the Anchorage Field Office.

• N437CC: The aircraft will be staffed to meet the needs of the Fairbanks Field Office.

Fleet Aircraft Use Report Manager (AURM) 

The AURM is used within DOI for government owned “Fleet” aircraft billing to create aircraft use 

report data files which are emailed to OASfleetmanager@ios.doi.gov for uploading into the 

FBMS system. Download the latest version of the AURM from the OAS website. OAS Technical 

Services has also developed a "next generation" Aircraft Use Report Manager application for 

iPads. Because the AURMA is not released to the public, it is not available on the iTunes app 

store. Instead, contact Sherry Lambert (208-433-5084, shery_lambert@ios.doi.gov) 

Fuel 

Lower 48

When utilizing either the Government Multiservice Aircard or the OAS MasterCard, fleet aircraft 

will attempt to purchase fuel at a DOD Vendor. 

• Record flight time under the pay item code “FW” (Wet Rate) on the OASAURM when 

receiving fuel from these locations.
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• Receipts for fuel purchased through the Government Aircard Multiservice program will be 

mailed directly to OAS Fleet Activities Specialist (Andrea Peckham) weekly. 

• Fuel or other items (oil, maintenance, etc.) purchased with the OAS MasterCard will 

follow OAS requirements, and signed statements with receipts will be provided in the 

requisite time and format to the appropriate authority. 

• Both fleet aircraft may purchase fuel through the NIFC ramp and no charge code is 

required. Fuel is part of the flight rate on both fleet aircraft. 

• NIFC ramp fuel receipts must be submitted in the same manner as the Government 

Aircard program, IE weekly to OAS Fleet Activities Specialist. 

Alaska

Alaska Fire Service has fueling contracts for Fort Wainwright and Galena. Record flight time under 

the pay item code “DF” (Dry Rate) on the OAS AURM when receiving fuel from these locations. Fuel 

received at these locations will be recorded on an OAS-59 provided to the pilot by the fueler.

Navigation/Charting data base updates

The data bases will be purchased by the BLM Aviation Office through the aircraft account. Those 

services (electronic and paper) will be updated by the pilot currently assigned to the aircraft in 

the requisite time intervals specified. 

Aircraft Mission 

N49SJ 

Primary mission is as a Smokejumper aircraft. 

• During fire season the aircraft is staffed 7 days a week. 

• Outside of fire season this aircraft is staffed during normal business hours. 

• While this aircraft is not in fire season aircraft maintenance is should occur during normal 

business hours. 

• During fire season maintenance support is encouraged to use extraordinary measures 

(overtime, AOG parts, charter aircraft to transport maintenance personnel and/or parts, 

etc...) to keep the aircraft in flight status per the maintenance procedures that follow. 

N190PE 

• Primary mission as a multi-role utility, Air Attack and logistics aircraft.

• During the core use period this aircraft is staffed at single pilot duty requirements. 12 on 2 

off or 6 on and 1 off with a maximum of 14-hour duty days. 

• During the non-core use period the aircraft is staffed as the NAO Flight Operations 

Manager requires. 

• During all operations maintenance support is sought during normal business hours as 

determined by the maintenance procedures that follow. 

• There is currently no provision for a relief pilot in the core use period. 

• The in-flight opening door is approved for use for photogrammetry. 

• Special Use (<500” AGL) require an ALSE approved flight helmet. 

N700FW 

• Primary mission as a multi-role utility, Air Attack and logistics aircraft.

• During the core use period this aircraft is staffed at single pilot duty requirements which 

are 12 on 2 off or 6 on and 1 off with a maximum of 14-hour duty days. 

• During the non-core use period the aircraft is staffed as the NAO Flight Operations 

Manager requires. 

• During all operations maintenance support is sought during normal business hours as 

determined by the maintenance procedures that follow. 
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• There is currently no provision for a relief pilot in the core use period. 

• Special Use (<500” AGL) require an ALSE approved flight helmet. 

N618 and N162GC 

• Primary mission as an ASM/Leadplane aircraft.

• During the core use period these aircraft is staffed at single pilot duty requirements which 

are 12 on 2 off or 6 on and 1 off with a maximum of 14-hour duty days. 

• During the non-core use period these aircraft is staffed as the NAO Flight Operations 

Manager requires. 

• While these aircraft are not in fire season aircraft maintenance is sought during normal 

business hours. 

• During fire season maintenance support is encouraged to use extraordinary measures 

(overtime, AOG parts, charter aircraft to transport maintenance personnel and/or parts, 

etc...) to keep the aircraft in flight status per the maintenance procedures that follow.

• N618 and N162GC meet all the requirements to perform ASM and Leadplane missions; 

Air Tactical missions must be conducted only with qualified ATP/LPIL/AITS.

• There is currently no provision for a relief pilot in the core use period. 

• The in-flight opening door is not approved for use at this time. 

N32PX

• Primary mission to support the BLM’s Law Enforcement program.

• Enhanced patrol and investigative coverage to lands and resources that were previously 

unpatrolled for their remoteness and distance from Anchorage and the state’s road 

system.

N437CC

• Primary mission to support the BLM’s Law Enforcement program. 

• Enhanced patrol and investigative coverage to lands and resources that were previously 

unpatrolled for their remoteness and distance from Fairbanks and the state’s road 

system. 

Single Engine Operations

351 DM 1.3 provides authorization for DOI aircraft to perform night and IFR operations in Single 

Engine aircraft.

United States Forest Service FSM 5716 provides authorization for the Forest Service to perform 

night and IFR operations in Single Engine aircraft.

Aircraft Scheduling 

N49SJ 

Scheduled through the Boise Smokejumpers. 

N190PE

Scheduled by Alaska Interagency Coordination Center (AICC), Aircraft Desk while in Alaska or 

the National Interagency Coordination Center (NICC) while in the Lower 48. During the non-core

use period the NAO Flight Operations Manager will schedule the aircraft. 

N618 and N162GC

Scheduled through NAO Flight Operations Manager/Boise Interagency Dispatch Center.
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N700FW

Scheduled by Upper Yukon Dispatch Center, Aircraft Desk while in Alaska or the National 

Interagency Coordination Center (NICC) while in the Lower 48. During the non-core use period 

the NAO Flight Operations Manager will schedule the aircraft.

N32PX

Scheduled by Anchorage Interagency Dispatch Center. 

N437CC

Scheduled by Anchorage Interagency Dispatch Center. 

Maintenance 

Use of a government contract requires the permission of the appropriate Contracting Officer. For 

unscheduled maintenance or scheduled maintenance from other than the Boise contractor, a list 

of government contract maintenance facilities is included in each airplane. Flight Crew members 

will contact OAS to assure the proper payment schedule is in place (i.e. credit cards or purchase 

order) and that the facility has the pertinent expertise, manuals, tools, and parts to perform the 

work. Flight crewmembers will need to assure that the repair facility understands the BLM 

discrepancy reporting and sign-off procedures.

• If a maintenance issues arises in the field, the Flight Crew Member on duty will contact 

the OAS Aircraft Maintenance Specialist as soon as possible. 

• In the event that they are not available, you may then contact the appropriate 

maintenance facility directly. For minor unscheduled maintenance, Flight crewmembers 

may contact the vendors directly. The OAS Aircraft Maintenance Specialist shall be 

contacted as soon as possible.
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Appendix 8 – Acting vs Point of Contact

State Aviation Manager (SAM) and Unit Aviation Manager (UAM) “Acting” vs 

“Point of Contact” Definitions and Expectations 

Acting: Authority by position to make and implement decisions directly related to aviation operations

 

• Signs documents at the appropriate level.

• Clear direction is given during in-brief on COR roles, if qualified to perform COR duties or as a PI as delegated 

by the COR.

• Will be provided copies/access to State/Unit Aviation Plans, contacts and related documents.

• Brief aviation crews and Incident Management Teams as applicable.

• Must receive a briefing from SAM or UAM.

• Working knowledge of Aviation Policy and operations. 

Longer Term Detail: 

• Must have "Manage" access to edit Safecoms and make public for their state

• Letter of Delegation as per state aviation plan on Project Aviation Safety Plan (PASP) signature levels

• Qualifications: At a minimum meets currency for Aviation Manager (OPM-04) and COR or PI roles if applicable. 

Point of Contact (POC): aka “Messenger” 

Forwards/refers aviation information and questions to a qualified UAM, SAM or Duty Officer as per chain-of 

command. Does not give direction, sign or authorize flight or Project Aviation Safety Plans (PASPs). 

Ultimately, the POC “messages” information to the identified next in chain-of-command (AFMO, FMO, Duty Officer, 

Dispatch) who has the authority and qualifications to make aviation decisions. 

• Will be provided a copy/access to State/Unit Aviation Plans and related aviation documents.

• Must receive a briefing from SAM or UAM.

• General working knowledge of Aviation Policy and operations.

Qualifications: At a minimum, have at least one aviation related red-card qualification (HECM, HMGB, SEMG, ATGS 

etc.) or IAT aircrew member currency or a Duty Officer. 

SAM & UAM responsibilities Reference BLM NAP 2.5 BLM State/District/Field Office Organizations
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Appendix 9 - Acronyms

Acronym Definition

310-1 Wildland Fire Incident Management System

9400-1a BLM Flight Request Form

AAF Aviation Airport Facilities

ABC BLM Airbase Committee

ABOD Aviation Board of Directors

ACETA Aerial Capture Eradication and Tagging of Animals

ACMIS Acquisition Career Management Information System

ACOR Alternate COR

AD Administratively Determined

AFF Automated Flight Following

AFS BLM Alaska Fire Service

AGL Above Ground Level

AIRS Aviation Information Reporting Support

ALDI BLM Aviation Leadership Development Initiative

ALSE Aviation Life Support Equipment Handbook

AMD-23E Aircraft Use Report Form

AMG BLM Aviation Management Group

AMOC Air Marine Operations Center - US Border Patrol

AMS IBC Aviation Management Systems

AOA Aircraft Operations Area (AOA)

AQD Acquisition Services Directorate

AQD-13 Request for Contract Services

AQD-16 Contract Award/Renewal Recommendation and Funding Availability Certification

AQD-19 Notice to Proceed

AQD-20 Request for Rental Services

AQD-91 Flight Services Request Form

ARA Aircraft Rental Agreement

ARTCC Air Route Traffic Control

ASAT Aviation Safety Assistance Team

ASM Aerial Supervision Module

ATC Air Traffic Control

ATGS Air Tactical Group Supervisor

ATP Air Tactical Pilot

AITS Air Tactical Supervisor

AURM Aircraft Use Report Manager (Fleet)

AV Exclusive Use Contract Availability

BLM Bureau of Land Management

BPA Blanket Purchase Agreement

BVC Best Value Comparison (Part of AQD-91)

CO Contracting Officer

COA Certificate of Authorizations

COR Contracting Officer’s Representative

COTR Contracting Officer Technical Representative

CFA Controlled Firing Areas

CWN Call When Needed

DHS Department of Homeland Security

DINS Internet NOTAM Service - DOD

DM Departmental Manual
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Acronym Definition

DOD Department Of Defense

DOI Department of the Interior

EAB Executive Aviation Board

EAC Executive Aviation Committee

EAS Executive Aviation Sub-Committee

EATPL Emergency Air Traffic Priority List

ESCAT Emergency Security Control of Air Traffic

ETA Estimated Time of Arrival

FAA Federal Aviation Administration

FAIRS Federal Aviation for Interactive Reporting System

FAO Forest Aviation Officer

FAR Federal Acquisition Regulations

FAR Federal Aviation Regulations

FBMS Financial and Business Management System

FLT BLM Fire Leadership Team

FMO Fire Management Officer

FOR Fixed Operating Rate

FPMR Federal Property Management Regulations

FTA Fire Traffic Area

FWFM Fixed Wing Flight Managers

GA General Aviation

GACC Geographical Area Coordination Centers

GTR Government Transportation Request

HB Handbooks

HOGE Hover Out of Ground Effect

IAA Interagency Agreement

IASC Interagency Airspace Subcommittee

FWFM Fixed Wing Flight Managers

IASG Interagency Aerial Supervision Guide

IASS Interagency Aerial Supervision Subcommittee

IAT Interagency Aviation Training

IATS Interagency Aviation Training Subcommittee

IBC

IBS

Interior Business Center

Incident Business System

IC Incident Commander

IES Illuminating Engineering Society

IFR Instrument Flight Rules

IHOpS Interagency Helicopters Operations Subcommittee

IHRG Interagency Helicopter Rappel Guide

IIC OAS Safety Investigator-In-Charge

IPAC Intra-Governmental Payment and Collection

IPP

IROC

Internet Payment Platform

Interagency Resource Ordering Capability

ISPOG Interagency Smokejumper Pilots Operations Guide

IWP Incident With Potential

LAT Large Airtanker

LATN Low Altitude Tactical Navigation Areas

LE Law Enforcement Operations

LPIL Leadplane Pilot

LOA Letter of Authorization

M3 Aviation Management for Supervisors training course
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Acronym Definition

M-410 Facilitative Instructor

MAC Multi-Agency Coordination

MACAP Mid Air Collision Avoidance Program

MAP Mandatory Availability Period

MAFFS Modular Airborne Fire Fighting System

MOU Memorandum of Understanding

SDS Safety Data Sheet

NAO BLM National Aviation Office

NAP BLM National Aviation Plan

NIAC National Interagency Aviation Committee

NIAIS National Interagency Airspace Information System

NICC National Interagency Coordination Center

NM Nautical Mile

NMAC National Multi-Agency Coordinating Group

NORAD North American Aerospace Defense Command

NOTAM

NSHO

Notice to Airmen

NWCG Standards for Helicopter Operations

NTSB National Transportation Safety Board

NWCG National Wildfire Coordinating Group

OAS Office of Aviation Services

OAS-2 Fleet Use Report

OPM Operational Procedures Memorandums

OSHA Occupational Safety and Health Administration

PASP Project Aviation Safety Plan

PI Project Inspector

PPE Personal Protective Equipment

PRISM Procurement Information System for Management

QPL Qualified Products List

RADS Rope Assisted Deployment

Redbook Interagency Standards for Fire and Fire Aviation Operations

RMP Resource Management Plans

SABO

SAM

NWCG Standards for Airtanker Base Operations

BLM State Aviation Manager

SAP FBMS related Systems, Applications, and Products data processing software

SAR Search and Rescue

SAS NWCG Standards for Aerial Supervision

SASES Smokejumper Aircraft Screening Equipment & Evaluation Subcommittee

SDS Safety Data Sheet

SEAT Single Engine Airtanker

SECO SEAT Coordinator

SEMG Single Engine Airtanker Manager

SES Senior Executive Service

SFMO State Fire Management Officer

SGI Special Government Interest Waiver

SME Subject Matter Expert

SMS Safety Management System

SR’s Slow Routes

SUA Special Use Airspace

TFR Temporary Flight Restriction

TSA Transportation Security Administration

UAM Unit Aviation Manager
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Acronym Definition

UAO Unit Aviation Officer

UAS Unmanned Aircraft Systems

USDA United States Department of Agriculture

USFS United States Forest Service

VFR Visual Flight Rules

VLAT Very Large Airtanker

WFCS Wildland Fire Chemical Systems

WH&B Wild Horse and Burro