BUREAU OF LAI{D MANAGEMENT

2OI4 EASTERN STATES AVIATION PLAN

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2014 EASTERN STATES AVIATION PLAN

Table of Contents

1. Aviation Plans

2. Aviation Management Organization

3. Administrative Requirements

4. Aviation Safety

5. Aviation Operations

6. Aviation Training

7. Airspace Coordination

8. Aviation Security

9. Aviation Facilities

10. Appendix

Appendix A: Example of a Pilot/Passenger Briefing
1.0 Aviation Plans

1.1 State Aviation Plan

The State Aviation plan is both a Statewide Aviation Safety Plan and an Aviation Operations

plan for the Bureau of Land Management (BLM), Eastern States (ES) organization. This

plan is required by BLM Manual 9400.33E, and by the BLM National Aviation Plan.

This plan provides guidance in the implementation of National policy and establishes statewide

policies and procedures. It clarifies Department of the Interior (DOI) and BLM policies. It

avoids r.p.uiing information or policies that are readily available in manuals, handbooks,

guides, unO tt. BLM National Aviation Plan. This Plan will be reviewed and updated annually.

i.2 Unit Aviation Plans

District/Field Offices are required to maintain written "Unit Aviation Plans", as per BLM Manual

9400.33.F. These plans should be concise documents which guide field employees who will be

involved in aviation activities. The plans should be reviewed annually and updated as necessary.

Section 3.3 of the BLM National Aviation Plan outlines the items that need to be addressed in

the Unit Aviation Plan.

The State Aviation Plan serves as the Unit Aviation Plan for:

o Southeastern State Field Offrce

o Northeastern States Field Office

o Lower Potomac Field Station

The ESO and Field Offices may supplement National aviation policy with more restrictive local

policies.

1.3 Project Aviation Safetv Plans

project Aviation Safety Plans (PASP) will be developed for all non-fire flights. Section 4.3.2 of

the BLM National Aviatio lists the required elements of a PASP. The State Director (SD)

is responsiUle for approving PASPs for Special Use Activities conducted by ES Field Offices.

One-time, non-complex missions may use the one page "Hazard Analysis and Dispatch/Aviation

Manager Checklist'; form as a PASP. An example of this form is in the Interagency Helicopter

Operaiions Guide. Also, some Special Use Activities, such as aerial ignition, have established

foimats and templates for PASPs (See the Interasency Aerial Iqnition Guide).

pASps with a final risk rating of "High" or above must be reviewed by the State Aviation

Manager (SAM) prior to line manager approval. A copy of the signed plan should reside with the

flight following entity prior to conducting operations.
2.0 Aviation Management Organtzation

2.1 State Director

The SD is responsible for all aviation activities within the jurisdiction of BLM ES to include all

states east of and adjacent to the Mississippi River.

The SD is responsible for approving all PASPs for Special Use Activities conducted by the ES

State Offrce.

2.2 State Aviation Manaser

The SD has appointed the ES Fire Management Office as the State Aviation Manager (SAM)

to provide professional staff support on all aspects of aviation management. ES employees

should contact the SAM with any aviation questions. The incumbent will be Lamar Liddell,

(601) 71s-s448.

Duties of the SAM include:

. Serves as the senior staff expert for aviation activities within the BLM, ES organization.

. Provides liaison with the National Aviation Office, the Department of the Interior Office

Aviation service (oAS), cooperators, Field offices and E,S Management.

. Plans and organizes aviation projects atthe ESO level by coordinating with aircraft

operators and ensures compliance with aviation policies and regulations governing aircraft

operations.

. Compiles and disseminates aviation safety information.

. Coordinates aviation user training for ES personnel and maintains records of

aviation training received.

. Provides guidance for the development and maintenance of Aircraft Mishap Response

Guides and Known Aerial Hazard Maps for ES.

. Provides guidance for implementation of National aviation program directives in support of

the BLM Mission.

. Clarifies regulations and provides guidance for Field Ofhces as needed.

. Forwards documentation of executive travel to the National Aviation Office, as required by

OMB Circular A-126. Coordinates approvals for senior executive travel on aircraft..
. Serves as the Contracting Officer's Representative for exclusive use aircraft contracts.

. Facilitates the ordering and movement of National shared aviation resources within ES'

2.3 Field Managers

The Field Managers are responsible for the overall aviation management program in their

respective offices.

2.4 Unit (Field Office) Aviation Manaeers

Each Field Manager appoints a Unit Aviation Manager who is knowledgeable in the field of

aviation and who coordinates the aviation program and provides technical assistance on all

aviation matters for the Field Office.

Duties of the Unit Aviation Managers include:

. Are the resident experts and sources of guidance at the field level. Should be involved

in all phases of planning and conducting aircraft use'

. Will coordinate aviation safety training for Field Office personnel.

. Will maintain local office Aviation Mishap Response Guides and Known Aerial Hazard

Maps, which shall be updated at least annually.

. Should give priority to on-site monitoring and assistance to aviation operations in the field.

. Ensure that airspace coordination and deconfliction takes place for both fire aviation

operations and non-fire aviation projects.

. Assure that vendors and cooperators are provided a thorough orientation to mission

requirements, standards, and procedures. This includes meeting with pilots and aircraft

users to assure Proper briefings.

. Should be aware of resource program needs, assess feasibility of aircraft use, and advise

users of options available. Must recommend against the use of aircraft if risks are

unacceptable, if aircraft operations would be inefficient, or if aircraft operations would

violate established Procedures.
. Need to be familiar with DOI and BLM Manual guidance and policies pertaining to

aviation.

2.5

Supervisors.

Supervisors are responsible for ensuring that employees receive training and procure the

prop., personal piotective equipment (PPE) commensurate with assigned aviation

activities, and are iesponsible for recognizing and eliminating or reducing aviation hazatds

in their programs.

2.6Aviation Dispatchers.

A11 persons used as aircraft.dispatchers will be adequately trained for the duties they perform.

These persons will be designated by their Unit Aviation Managers. The "IAT Requirements

Matrix;', which is contained in DOI OPM No. 04 identifies the training required for Aviation

Dispatchers.

2.7 Flieht Manaeer.

Each flight or aviation project will have a designated Flight Manager, whether the flight is

under operational control of the BLM or another agency. This position was previously

referred to as the "Aircraft Chief of Party."

The Flight Manager is given primary responsibility to see that the flight or project is conducted

safely and efficiently. The Flight Manager ensures that regulatory and administrative

procedures are followed properly.

Flight Managers are required to have specific training depending on the aircraft used

and the mission. Training requirements are found in DoI oPM04.

2.8 Passengers and Aviation Users.

A11 employees are required to maintain current certifications in the training required for

the aviation activities they are involved in.

Aircraft users are responsible for ensuring aviation activities are conducted safely, according to

policy, and within the scope of their employnent. Every employee should take steps to halt any

aviation operations that are unsafe. Every employee observing an unsafe aviation activity is

encouraged to report it via the safecom system. Reference 4.3 Aviation Safety Communique' -

Safecom. This does not substitute the immediate on the spot correction.

Aircraft users are required to check pilot qualifications cards, atcraft data cards, or other

administrative approval documents prior to the start of a project. Failure by the pilot or

vendor to produce proper documentation will result in immediate cessation of operations until

qualifi cations are determined.
3.0

All employees have the option of not participating as an aircraftpassenger if they feel the

flight would be unsafe or if flying makes them uncomfortable.

Many private life insurance policies are invalid when the insured is a passenger on non-airline

flights. An employee is not required to fly on Government aircraft if this applies to his/her life

insurance policy.

2.9 Fiscal and Procurement Personnel.

Fiscal and procurement personnel need to be familiar with procurement and payment procedures

for aircraft.

Administrative Requirements

3.1 Requests for Services and Procurement

Requests for aircraft charterhental services for ES projects will be coordinated by the SAM.

Field Offices are responsible for establishing local aircraft request procedures.

3.2 Payment

DOI utilizes the Aviation Management System (AMS) which is an electronic invoicing and

billing system. Upon completion of flight services, the government representative and the

vendor will compiete and sign a paper copy of Form AMD-23E, which documents flight hours

and other services received. It is the vendor's responsibility to transfer the data from the AMDZ3E to the AMS system, and submit their invoice electronically for paynent. Copies of the

paper AMD-23E will be retained by the government representative. An (excel spreadsheet)

veision of the AMD-23E is available to create the paper document, and its use is encouraged.

The SAM will process paynent documents for aircraft used by the E,S.

Field Offices are responsible for establishing procedures for processing paynent documents

for their aircraft use.

Detailed information on completing Form AMD-23E can be obtained from the SAM or Unit

Aviation Managers or on the OAS web site: www.oas.doi.qov.

3.3 Reimbursement

If BLM will be reimbursing other agencies for use of their aircraft, an lnteragency Agreement

must be completed and approved prior to the flight. Otherwise, BLM cannot pay for the

services.

3.4 Documenting Aircraft Use

All use of non-DOI atcraft. will be documented on form AMD-23E, whether or not
reimbursement takes place. An exception is the use of USFS aircraft for wildfire suppression.

3.5 End Product Contract Aircraft

An "end product contract" is a contract in which the Government requires the delivery of goods

or services without specifying the delivery method. The BLM does not exercise operational

control over the aircraftin these contracts and provides few, rf any, specifications for the tlpe of

aircraftor aircraft performance. Two examples of end product contracts used by BLM are (1) an

aerial photography contract, in which BLM pays to receive photographs, and (2) N, herbicide

application project, in which BLM pays for an area of land treated.

End product contracts where contractors could conceivably utilize aircraft must be reviewed by

the SAM to ensure that specifications and language do not unintentionally imply or determine

atcr aft. operational control.

Aircraft involved in end product contracts are not approved or carded by OAS. They are

required to adhere to all applicable Federal Aviation Regulations pertaining to civil attcraft.

Court cases and National Transportation Safety Board decisions have placed increased

responsibility on the Government for accidents involving end product contract aircraft. It is

important that BLM clearly distinguishes which procurements are for end products and which

pro.ur"*"nts are for flight services. Information on our current requirements for end product

contracts can be found in DOI OPM-35.

3.6 Reference Materials

District and Field Offices are required to maintain an aviation reference library as per the BLM

National Aviation Plan. The following is a list of documents containing guidance and

regulations needed to conduct safe and efficient aviation operations. While this is not a

comprehensive list, these publications are directly applicable to the ES BLM aviation program.

Mosl of these documents are also available on the Internet, at either www.oas.doi.sov or

www.fire.blm.gov.

. Departmental Manual 350-354, "Aviation Policy" (2011)

. BLM Manual 9400 Series "Aviation Management" (1999)

. BLM National Aviation Plan (updated annually)

. DOI-AM Operational Procedures Memoranda (OPMs) (updated annually)

. hrteragency Helicopter Operations Guide (2013)

. Lateragency Airspace Coordination Guide (2003)

. Interagency Airtanker Base Operations Guide (2011)

. Interagency Helicopter Rappel Guide (2011)

. Interagency Aerial Ignition Guide (2012)

. Interagency Single Engine Air Tanker Operations Guide (2011)

. Federal Aviation Regulations (14 CFR)
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BLM Safety & Health for Field Operations Handbook lll2-2

Aviation Life Support Equipment Handbook (2008)

Interagency Aviation Transport of Hazardous Materials Handbook/Guide (2005)

DOI Field Reference Guide for Aviation Users (2006)

lnteragency Aviation Training Guide (2012)

lnteragency Aerial Supervision Guide (2014)

Aviation Risk Management Workbook (201,1)

Current BLM Instruction Memoranda and Information Bulletins related to aviation

OPM-I1 and that all requests must be routed through the respective SAM to the NAO

Ordering Offlce

Eastem States Office

Southeastem States Field Office

Northeastern States Field Office

3.7 Billee Codes

Billee Codes are required on the AMD-23E in order to track the office being billed for use of the

ahcraft.. The Billee codes are assigned as follows:

Billee Code

6360

6910

6880

4.0 Aviation Safety

4.1 General Policy

All BLM aviation operations within ES will be conducted efficiently and safely' This will be

achieved through utilization of sound aviation management practices. Key components of

aviation safety include proactive hazard identification, application of risk management

techniques, and an active accident prevention program.

4.2 Safety Manasement Systems

SMS serves to structure the BLM existing safety initiatives and provides a review process for

how well those initiatives function. Safety is a system that incorporates a proactive approach to

using hazardidentification and risk management in all phases of an aviation operation and

progrurnr. The SMS has four major components: policy, risk management, assurance and

promotion. Additional aviation safety information can be found:

o BLM Aviation Safety

. OAS Safety

o Risk Assessment Tool (IHOG3-1)

4.3 Personal Protective Equipment (PPE)

All BLM employees will wear the PPE required for the specific flight. (See 351 DM 1, Aviation

Life Support Equipment Handbook). This includes flights on BLM aircraft" as well as aircraft

owned or controlled by other agencies.
Non-BLM passengers flying on BLM aircrafr.will utilize all PPE required of BLM passengers.

4.4 Aviation Safet)'Communique' - Safecom

The Safecom system is used to report and 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 and increase

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 when they feel it is warranted. www.safecom.sov Reference NAP 4.5.3
5.0 Aviation Operations

5.1 Special Use Activities

Special Use Activities are afucraftmissions requiring special considerations due to increased risk

involved in those missions, as opposed to point-to-point transportation of passengers or cargo.

This may require specif,rc aircraft equipment, deviation from normal operating practices, special

pilot skiils and techniques, and personal protective equipment (PPE). Since Special Use

Activities involve a higher levei of risk andlor pilot skills, specialized training and detailed

planning are required. Requirement for Special Use Activities include:

Special Use Activities must be approved by the Field Manager or the SD.

A Project Aviation Safety Plan (PASP) must be completed'

Offices utilizing airqaftfor fire suppression operations should maintain a Fire Aviation

Safetylan, which serves as the Project Aviation Safety Plan for fire suppression operations.

Special Use Activities have stringent flight following requirements, normally a 15

minute check-in via radio, or use of the Automated Flight Following (AFF) system, if

the aircraft is properlY equiPPed.

Special Use Activities have PPE requirements specific to that particular mission.

Special Use Activities require that the pilot and aircraft. are approved by OAS for the

specific activity.

In general, BLM Volunteers shall not participate in Special Use Activities, since these

missions usually entail increased risk.

Employees engaged in Special Use Activities must meet the training requirements outlined

rn352 DM 1, and DOI OPM-04.

Only air crew members and passengers essential to the mission may be on board Special

Use Flights.

A listing of Special Use Activities is contained in DOI OPM-29. The following are

examples of Special Use Activities that are typically conducted by ES BLM:

Low level flights, which are defined as flights conducted within 500' of the surface.

Air Tactical Group Supervisor, Helicopter Coordinator, or Airtanker Coordinator

operations.
Aerial ignition activities for prescribed burning or wildland fire suppression. (See the

Interagency Aerial Ignition Guide.)

Changes to the aircraftthat invalidate the aircraft's standard airworthiness certificate'

An example would be radio tracking of wildlife with an external antenna mounted on

the aircraft.

Transport of external loads.

Takeoff or landing requiring special techniques due to hazardous terrain, obstacles,

pinnacles, or surface conditions.

Mountain flying in helicopters.

5.2 Cooperator Aircraft

The use of other agency aircraft and pilots, or privately operated aircraft" will be coordinated

through the SAM. Local, State, and non-DOI agencies frequently have less stringent standards

than DOI. Therefore, OAS must give approval prior to using these aircraft and pilots. Two

week's lead time will be needed to check pilot and aircraft qualifications and to obtain OAS

approval.

The Civil Air Patrol (CAP) is a federally chartered corporation, and functions as a volunteer

auxiliary of the United States Air Force. A previous MOU between the CAP and the DOI has

been cancelled. The BLM can no longer use CAP aircraft or pilots to conduct BLM missions.

5.3 U.S. Forest Service (USFS) Aircraft

USFS CardedAircraft and Pilots meet DOI requirements, and BLM employees can fly as

passengers or air crew members. However, BLM cannot pay the USFS for aircraft use unless

reimbursement agreements are in place. The BLM does utilize USFS contracted aircraft for

wildfire suppression operations. Since wildhre suppression costs are not reimbursed among the

Federal witdland fire management agencies, the USFS uses the fire code for the wildfire, and

pays for the aircraft use with USFS fire suppression funds.

5.4 Military and National Guard Aircraft

Military and National Guard aircraft will not be used as an alternative to rental or contract

ajr.cxaft in order to save BLM funds.

Military and National Guard aircraft, can be used in emergencies, and can be used in special

circumstances, primarily limited to projects in which BLM and the military cooperate and gain

mutual benefits.

Use of military or National Guard aircraft. and pilots outside the scope of the existing DOI MOUs

will be coordinated through the SAM and approved by the SD. Two week's time will be needed
to obtain Departmental approval.

5.5 Law Enforcement Operations

The BLM Law Enforcement personnel often operate/cooperate with other agencies in

performing missions. This may involve the use of State, local, military and other Federal

auqaft.. ln some cases, the nature of law enforcement activities requires aviation procedures that

differ from non-law enforcement operations. However, to the extent possible, BLM Law

Enforcement personnel will follow all established safety practices and procedures when involved

in aviation operations. This includes mission planning, supervisory approvals, training, personal

protective equipment (PPE), and flight following. BLM Law Enforcement personnel will not

iia. i1aircraft operated by other agencies, unless their use of the aircraft. is authorized by OAS.

Confidentiality is occasionally a concern with law enforcement operations. However, the

supervisors of Law Enforcement personnel, as well the Eastern States Special Agent in-charge

and SD. Law Enforcement Office, must be informed whenever employees will be involved in

law enforcement aviation operations.

5.6 Law Enforcement Agreements

The DOI has existing Law Enforcement Memorandums of Understanding (MOUs) with the

following agencies:

Drug Enforcement Administration

Department of Homeland Security/U.S. Customs and Border Protection

U.S. Coast Guard

Department of Defense

These MOUs are generally intended for law enforcement activities, but some have provisions for

non-law enforcement projects. They are currently being reviewed by OAS. Updated guidance

on the use of these MOUs is Pending.

6.0 Aviation Training

6.1 Responsibility

The SAM is responsible for providing Aviation Safety Training for ES personnel. Unit

Aviation Managers will coordinate training for field personnel.
6.2 Trainins Courses

The DOI OPM04 outlines Departmental requirements for aviation training for non-fire akqaft.

use. This OPM contains a matrix outlining the minimum aviation training required for each

position in the aviation program, and for supervisors and line managers. DOi personnel who are

iequired to take the 83 iurriculum will now be required to take the A-100 Basic Aviation Safety

course in order to maintain their qualifications. The next revision of the OPM-04 and the

interagency Aviation Training Guide will reflect these changes. A-100 Basic Aviation Safety

course can be found at www.iat.gov'(reference IATNG 14-01).

Training and qualification requirements for aviation positions in wildland fire operations,

including prescribed fire, are contained in PMS 310-1, Wildland and Prescribed Fire

Qualifications System Guide.

Numerous other training courses exist which are beneficial for increasing the safety and

efficiency of aviation programs. The Unit Aviation Manager or the SAM can assist supervisors

in developing training plans to ensure that employees are properly trained for their duties.

7.0 Airspace Coordination--Reserved

8.0 Aviation SecuritY

Aircraft users and aviation managers should be proactive in protecting aircraft we use. This could

include parking aircraft.in secure areas of an airport, providing aircraft.parking areas with

adequate tie-down capabilities, andlor providing hangar space when needed. Concern for aircraft

security should include potential weather damage, animal damage, and other factors. The BLMowned, contracted, or rented aircraft. are highly visible to the public and, therefore, are potential

targets for vandalism or sabotage. Airuaft users should be familiar with Chapter 8 of the BLM

National Aviation Plan, which addresses aviation security.

9.0 AviationFacilities-Reserved

10.0 Appendix

Appendix A is attached.
APPENDIX A: EXAMPLE OF.A PILOT/PASSENGER BRIEFING

Prior to flight, the pilot-in-command shall ensure that all passengers have been briefed on:

A. Procedures.

1. Entry and exit.

2. Emergency actions.

B. Location and use of:

1. Seat belts and shoulder hamesses.

2. Emergency exits.

3. Emergency Locator Transmitter (ELT).

4. Aviation Life Support Equipment (ALSE), including PPE.

5. Oxygen equipment, if applicable.

6. First aid kit.

7. Fire extinguishers.

8. Fuel shut-off.

9. Battery switch.

10. Smoking restrictions.

Additional aviation safety reference material can be referenced within the

Incident Pocket Response Guide (IRPG).