U.S. DEPARTMENT OF AGRICULTURE 

U.S. DEPARTMENT OF THE INTERIOR 

Interagency Fire Program Management 

Qualifications Standards and Guide 

White Paper 

May 24, 2004 
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U.S. DEPARTMENT OF THE INTERIOR/DEPARTMENT OF AGRICULTURE 

May 24, 2004

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U.S. DEPARTMENT OF THE INTERIOR/DEPARTMENT OF AGRICULTURE

“Interagency Fire Program Management 

Qualifications Standards and Guide” 

Background: 

Following the South Canyon Fire in 1994, an interagency team was formed to 

Investigate the fatalities and contributing factors. The subsequent 1995 Federal 

Wildland Fire Policy and Program Review, signed by both Secretaries of Agriculture 

and Interior, directed Federal wildland fire agencies to establish fire management 

qualifications standards to improve firefighter safety and increase professionalism in 

fire management programs. An Interagency Fire Program Management 

Qualifications Task Group was established to develop these qualification standards 

and to accomplish other related assignments. A more detailed history and chronology 

of events is at Appendix A. 

I. The Interagency Fire Program Management (IFPM) Standard 

The objective of the Interagency Fire Program Management Qualifications Task 

Group (Task Group) has been to complete staff work, acceptable to all federal 

agencies with wildland fire management responsibilities and to the Office of 

Personnel Management, sufficient for the establishment of minimum qualifications 

standards for key fire management positions. In accomplishing this, the Task Group 

has developed: 

• 14 key fire management positions (Appendix B) and established minimum 

qualification standards with consideration for the complexity of the fire program 

where the position is located. These positions are: 

• Interagency Hotshot Crew (IHC) Superintendent (technical) 

• Helicopter Manager (technical) 

• Senior Firefighter (technical) 

• Engine Module Supervisor (technical) 

• Supervisory Fire Engine Operator (technical) 

• Initial Attack Dispatcher (technical) 

• Wildland Fire Operations Specialist (professional or technical) 

• Prescribed Fire and Fuels Specialist (professional or technical) 

• Prevention and Education Specialist (professional or technical) 

• Initial Attack Lead Dispatcher/Assistant Center Manager (technical) 

• Center Manager (professional or technical) 

• Unit Fire Program Manager (professional) 

• Geographic Area Fire Program Manager (professional) 

• National Fire Program Manager (professional) 
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U.S. DEPARTMENT OF THE INTERIOR/DEPARTMENT OF AGRICULTURE 

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Positions annotated “professional or technical” may be established as professional or technical at the GS-9 

level and below depending upon whether professional or technical knowledge is required, the 

organizational structure exists, and the competency is met as established in the rating guide. 

• Office of Personnel Management (OPM) approved Supplemental Qualification 

Standard for GS-0401 Fire Management Specialist, the selected series for 

professional fire management positions. 

• Competency descriptors for key fire management positions. 

• A rating guide for evaluating fire program complexity. 

• Minimum grade levels predetermined by application of the complexity guide and 

the appropriate position classification standard. 

• Standard Key Performance Elements based on the competencies for each position. 

• A list of required and recommended training for designated agency managers. 

• A system to determine when a “specialist” or center manager position is 

professional or technical based on pre-determined competencies and job 

complexity. 

• Agreement that all IFPM fire positions classifiable at GS-11 and above are 

professional positions based on the required competencies and job complexity. 

II. The IFPM Standard consists of four components: 

1. OPM Qualification Standard Requirements ( Appendix C). For professional 

positions, the IFPM Standard lists the required Supplemental Qualification 

Standard for the GS-0401 Fire Management Specialist. For the technical 

positions, the GS-0455 (Range Technician) and GS-0462 (Forestry Technician) 

qualification requirements are listed. 

2. Specialized Experience Requirements. This is specific creditable experience 

necessary for the employee to qualify for the grade of the position to be filled. 

3. National Wildfire Coordinating Group (NWCG) Incident Management 

Qualifications.

4. Additional Required Training for Position in Question. This is listed as 

required coursework. 

 The products developed by the Task Group and the Standards will: 

• improve wildland firefighter and public safety by establishing, for the first time, 

interagency standardized incident management training and specialized 

experience requirements; 

• establish minimum collegiate-level or NWCG and other creditable educational 

standards for professional fire program managers to meet the OPM-approved 

supplemental qualification standard for GS-0401 fire management specialist; 

• streamline the hiring process and ensure that qualified people are hired; 
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U.S. DEPARTMENT OF THE INTERIOR/DEPARTMENT OF AGRICULTURE

• enhance interagency consistency in hiring and promotion practices; 

• enhance retention and promotion opportunities (e.g., by facilitating the 

movement of employees from technical positions to fire management positions 

and increasing fire knowledge and skills within the workforce); 

• improve the capability of using fire on the ground, reducing fire hazard, and 

improving land conditions; 

• develop standard interagency fire management position descriptions; 

• provide employee development tools for identifying career training, education, 

and experience needs and opportunities, which helps meet the workforce 

requirements of the: 

o National Fire Plan; 

o 10-Year Strategic Plan; 

o Tri-Data Firefighter Safety Report; 

o Forest Service Agency Strategy for Fire Management Report; and 

o Department of the Interior Human Capital Workforce Plan. 

III. Steps to Implementation 

Implementation of the IFPM Standard: Implementation will begin October 

1, 2004, with full implementation to be accomplished by October 1, 2009. Within 

30 days of the date the implementation memorandum is signed, the National Fire 

and Aviation Executive Board (NFAEB) will charter and begin overseeing a 

standing committee composed of fire management and human resources 

personnel from USDA Forest Service and Department of the Interior (DOI) 

headquarters and bureaus. This standing committee will develop specific 

implementation instructions that will provide the vehicles for carrying out the 

broad implementation actions discussed below. Prior to the October 1, 2004 

implementation date, the Forest Service and DOI bureaus will develop strategies, 

plans and budgets required to successfully implement the IFPM Standard. 

A. Reclassification of Positions to the Appropriate Technical or 

Professional Series. 

The Forest Service and DOI bureaus will determine whether a position should 

be established as a technical or professional position, based on application of 

the appropriate OPM position classification standard and the IFPM standard 

for each Key Fire Program Position. If a position is reclassified to a 

professional series, the procedures for filling vacant positions will be followed 

as outlined in Section B. Directions contained in Section C apply to 

encumbered positions. 

B. Filling Vacant Key Fire Program Positions 
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Professional Positions: Between October 1, 2004 and October 1, 2009, 

all vacant or newly-created positions determined to be professional may be 

classified and advertised in separate announcements as both professional (GS0401) and technical (GS-0462, GS-0455). The GS-0301 series will not be 

used for any of the Key Fire Program positions. After October 1, 2009, 

professional fire positions will only be classified and advertised as a GS-0401, 

unless an exception is granted (see Section IV. Agency support to assist 

workforce development). 

If a well qualified GS-0401 candidate cannot be hired for the position, it may 

be filled with a GS-0462/GS-0455 who meets the IFPM Standard 

requirements. This is contingent upon this individual completing the positive 

education requirement of the Supplemental Qualification Standard for the GS0401 Fire Management Specialist before October 1, 2009. This contingency 

will be clearly stated in the technician job announcement and in an agreement 

signed by the candidate upon accepting the position. Upon completing the 

requirements, the incumbent may be non-competitively converted to a GS0401 at the current grade level. 

Technical positions: Technical positions will be staffed in the appropriate 

series (i.e., either GS-0455 or GS-0462). Individuals selected must meet all of 

the minimum qualification standards..

Exception: All of the 14 Key Fire Program Management positions require 

NWCG Qualifications as a part of the Standard. These are the three areas of 

Command, Operations, and Prescribed Fire. Some of these positions do not 

require currency in these positions. Until October 1, 2009, only two of any 3 

specified non-currency NWCG position requirements must be met. If only 

two non-currency NWCG positions are required, both must be met. This is 

true for both professional and technical positions.

(Explanatory Note: Experience will be credited as professional experience 

if the experience was gained in a technical or administrative fire position that 

has been or will be converted to the professional GS-0401 series.) 

C. Encumbered Key Fire Program Positions as of October 1, 2004 

Converting from technical or administrative fire positions to GS0401: Encumbered Key Fire Program positions earmarked for 
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U.S. DEPARTMENT OF THE INTERIOR/DEPARTMENT OF AGRICULTURE

reclassification to GS-0401 (e.g., from the GS-0301, GS-0455, or GS-0462 

series), will not be re-classified until the incumbents meet all the IFPM 

Standard requirements within the time constraints. Management and the 

employee must create an Individual Development Plan to meet the October 1, 

2009 implementation date. When the incumbent meets all IFPM Standard 

qualification requirements for the position, it will be reclassified, and the 

incumbent will be non-competitively converted to the GS-0401 series at the 

same grade level (See 5 CFR 335.103. Agency Promotion Programs, Section 

(c) (3), Discretionary Actions). 

(Explanatory Note: Experience gained in a technical or administrative fire 

position that is later converted to a professional GS-0401 position will be 

credited as professional experience.) 

Encumbered Key Fire Program Management Positions that will 

remain appropriately classified as professional or technical: 

Incumbents must meet minimum required components within the five-year 

period. Incumbents in professional positions must also meet the Supplemental 

Qualification Standard for the GS-0401 Fire Management Specialist. 

Management and the employee must create an Individual Development Plan 

which will meet the October 1, 2009 implementation date. 

IV. Agency support to assist workforce development: 

The agencies have collectively agreed to provide the funding and opportunities 

(e.g., training, compensated time) for employees in Key Fire Program Positions to 

meet the minimum qualification requirements of the IFPM Standard. However, 

there could be circumstances beyond agencies’ and/or employee control which 

prevent an employee from meeting the requirements within the allotted time. On 

rare occasions, extensions of the 5-year period may be approved by the NFAEB 

and Department-level fire management and human resources staff, in accordance 

with procedures developed by the Standing Committee. 

V. Special Provisions for Certain In-service Placement Actions: 

It is important to recognize that on rare occasions there may be incumbents who do 

not meet the required educational requirements, but who have exceptional experience 

in performing the duties and responsibilities of the encumbered position. In these 

instances, in accordance with OPM regulations, an interagency board composed of at 

least two persons who have professional standing in the field of fire program 

management (one from USDA, and one from DOI’s Secretariat Level) will be 

established. This board will conduct a comprehensive review of the employee’s 

education and experience to determine eligibility for the position earmarked to be 

reclassified to the professional GS-0401 series.
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To be considered qualified for the reclassified position, the employee’s work 

experience and education must reflect significant full performance-level 

accomplishment of the duties of the position. These actions must be certified by the 

interagency board. If the employee aspires to any other position, he/she will be 

subject to the normal regulations and procedures that govern promotions, 

reassignments, etc. 

VI. Revisions and Updates to the IFPM Guide 

The NFAEB will oversee a standing committee which will develop a process to 

periodically revise and update the IFPM Guide and the Supplemental Qualification 

Standard for the GS-0401 Fire Management Specialist. 
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U.S. DEPARTMENT OF THE INTERIOR/DEPARTMENT OF AGRICULTURE

Appendix A 

Interagency Fire Program Management Standards and Guide 

Background History and Chronology 

Background

On July 6, 1994, a combination of fire fighting resources including helitack, 

smokejumpers and interagency hotshot crews were assigned to the South Canyon Fire 

west of Glenwood Springs, Colorado. A dry cold front with very strong winds passed 

over the area that afternoon causing all 49 firefighters to abandon the fireline in an 

attempt to escape the 100 foot flames of the rekindled inferno. Thirty-five firefighters 

survived; 14 died. 

An interagency team was formed to investigate the fatalities and contributing factors. 

The South Canyon Fire Investigation Report was published on August 17, 1994. As a 

result, the Acting Director, Bureau of Land Management, and the Chief, Forest Service, 

established the Interagency Management Review Team (IMRT) to serve as a steering 

group, study the findings and conclusions of the Investigation Team, and propose a plan 

for corrective action. 

Management Actions and Expectations

On October 17, 1994, the IMRT Report was published. In the report it was noted that 

some key management personnel, who had direct impact on firefighter safety and 

programs, did not have adequate backgrounds or qualifications in fire management. It 

included, among others, these recommendations (IMRT Topic 3.6): 

1. “Establish minimum qualifications for fire managers and agency administrators 

who are required to make fire management decisions.” 

2. “Agency Administrators should ensure that personnel holding, or selected for, fire 

management or agency administrator positions are qualified for the level of wildland 

fire complexity involved in the position or are able to obtain these qualifications 

within an acceptable time period.” 

On December 18, 1995, the U.S. Department of Interior and the U.S. Department of 

Agriculture published the final report of the Federal Wildland Fire Management Policy 

and Program Review (1995 Federal Fire Policy). This Report was signed by the 

Secretaries of both Departments. To improve firefighter safety and increase 

professionalism in fire programs, it directed the federal agencies to: 
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 “establish fire management qualifications based on program complexity, and staff 

existing and future agency administrator and fire management vacancies with 

individuals who meet these qualifications and who are committed to accomplishing 

the total fire management program” 

On May 23, 1996, the U.S. Department of Interior and the U.S. Department of 

Agriculture published the Implementation Action Plan Report outlining action items 

which must be accomplished by the signatory agencies to fully implement the Federal 

Fire Policy. To address safety and professionalism issues, several action items were 

specific to the development of qualifications for agency administrators and personnel 

assigned fire management duties including: 

Action Item 27. “establish fire management qualifications based on program 

complexity, and staff existing and future agency administrator and fire management 

vacancies with individuals who meet these qualifications and who are committed to 

accomplishing the total fire management program.” 

Action Item 62, “Develop and utilize consistent fire management qualification 

standards and specific selection criteria for fire program managers.” 

Action Item 63: “Establish job performance standards for agency administrators and 

fire managers that clearly reflect the complexity and scope of fire management 

responsibilities.” 

The Federal Fire and Aviation Leadership Council (FFALC: the respective Fire Directors 

of the USDA-Forest Service, and USDI-Bureau of Indian Affairs, Bureau of Land 

Management, Fish and Wildlife Service, and National Park Service) combined the IMRT 

Action Item 3.6 with action items #27, 28, 62, 63, and 64 of the “Implementation Action 

Report Plan” for the “Federal Wildland Fire Management Policy and Program Review, 

12/95". To accomplish these action items along with other assignments, the FFALC 

formed an Interagency Fire Program Management Qualifications Task Group. An initial 

meeting was held in July, 1997. 

Further support for interagency fire program management competencies and 

qualifications was identified in the “Wildland Firefighter Safety Awareness Study”, a 

FFALC-sponsored study contracted to the Tridata Corporation, Arlington, Virginia. In 

March 1998, Tridata Corporation released its Phase III Report, “Implementing Cultural 

Changes for Safety”. Chapter 4 of the Report, “Leadership and Fire Management”, 

identified three goals for achieving leadership experience and competence, with the 

ultimate objectives of increasing firefighter safety and improving program 

professionalism: 
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U.S. DEPARTMENT OF THE INTERIOR/DEPARTMENT OF AGRICULTURE

“Goal 42: Fire experience and competency should be considered as critical selection 

factors for fire leadership and fire management positions.” 

“Goal 43: All personnel in a given position must meet the performance requirements 

of that position.” 

“Goal 44: Fire Management Officers (FMO’s) must be selected from among those 

with fire backgrounds.” 

 

The Implementation Strategy for accomplishing these safety-oriented goals is 

to “Set and enforce minimum requirements for key leadership positions.” 

CHRONOLOGY: 

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• July 6, 1994 __ 14 firefighters died in the South Canyon Fire west of Glenwood 

Springs, CO.

• August 17, 1994 __ The South Canyon Fire Investigation Report was published 

by an interagency team that was formed to investigate the fatalities and 

contributing factors. As a result, the Acting Director, Bureau of Land 

Management, and the Chief, Forest Service, established the Interagency 

Management Review Team (IMRT) to serve as a steering group, study the 

Report’s findings and conclusions, and propose a plan for corrective action.

• October 17, 1994 __ The IMRT published its report. It found that some key 

management personnel who had direct impact on firefighter safety and programs 

did not have adequate backgrounds or qualifications in fire management. The 

IMRT `s recommendations included the following:

1. Establish minimum qualifications for fire managers and agency 

administrators who are required to make fire management decisions. 

2. Agency Administrators should ensure that personnel holding, or selected 

for, fire management or agency administrator positions are qualified for 

the level of wildland fire complexity involved in the position or are able to 

obtain these qualifications within an acceptable time period. 

• December 18, 1995 __ DOI and USDA published the final report (signed by both 

Secretaries) of the Federal Wildland Fire Management Policy and Program 

Review (1995 Federal Fire Policy). To improve firefighter safety and increase 

professionalism in fire programs, the Report directed Federal agencies to: 

establish fire management qualifications based on program complexity, 

and staff existing and future agency administrator and fire management 

vacancies with individuals who meet these qualifications and who are 

committed to accomplishing the total fire management program. 

• May 23, 1996 __ DOI and USDA published the Implementation Action Plan 

Report that outlined actions to be accomplished to fully implement the Federal 
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Fire Policy. To address safety and professionalism issues, several action items 

specific to the development of qualifications for agency administrators and 

personnel assigned fire management duties included: 

1. Action Item 27. (same as the statement above); 

2. Action Item 62. Develop and utilize consistent fire management 

qualification standards and specific selection criteria for fire program 

managers. 

3. Action Item 63. Establish job performance standards for Agency 

Administrators and fire managers that clearly reflect the complexity and 

scope of fire management responsibilities. 

Throughout this time, various efforts were underway to address recognized fire 

program qualifications deficiencies, both coincidental to, and as a result of, the IMRT 

Report and the Federal Fire Policy Review. As examples: 

o July, 1995 __ The National Park Service convened an interagency task 

group to identify essential competencies for selected fire management 

positions. 

o August 1995 __ The “Interagency Task Group Report: Federal Fire and 

Aviation Management Competencies” was produced by that interagency 

task group. 

o August, 1995 __ The Bureau of Land Management (BLM) conducted an 

internal National Fire and Aviation Review. The outcome of this review 

was the establishment of performance standards for BLM agency 

administrators and fire program managers. 

o April, 1996 __ BLM established qualification standards for six key fire 

management positions in the GS-0401 series. 

Subsequently, the FFLAC formed the Interagency Fire Program Management 

Qualifications Task Group to accomplish these and other action items. 

• July, 1997 __ the Task Group held its first meeting. The Task Group’s objectives 

were to complete staff work, acceptable to all Federal agencies with wildland fire 

management responsibilities and to the Office of Personnel Management, sufficient to 

establish minimum qualifications standards for key fire management positions. The 

Task Group: 

o drafted management and “red card” qualifications for key fire 

management positions, based on program complexity; 

o determined that there are no differences in qualifications or competencies 

between collateral duty or multi-functional positions and full fire 

management positions (job requirements are the same); 
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o identified existing appropriate tools (training, handbooks, job performance 

guidelines, planning documents) necessary to assist administrators and fire 

management personnel in administering and managing safe and efficient 

wildland fire programs; 

o drafted standard selective placement factors for key fire management 

positions to be included in all Federal vacancy announcements; 

o drafted standardized key performance elements (critical results) for fire 

management positions; 

o drafted consistent and adequate agency administrator training 

requirements for those making wildland fire management decisions, based 

on program complexity; 

o drafted generic position description language for entry level, full 

performance , collateral duty, and supervisory fire management positions 

and recommended grades, based on program scope and complexity. 

o drafted Supplemental GS-0401 Qualification Standards for professional 

fire management work that includes academic and work experience 

criteria to provide consistency between all Federal wildland fire 

management agencies. 

January, 2000 __ The Interagency Fire Program Management 

Qualifications Standards and Guide was approved by FFALC. 

August, 2002__ The Supplemental GS-0401 Qualification Standards for 

professional fire management work was approved for use by the Office of 

Personnel Management. 

October 1, 2004_Initial implementation date of the Interagency Fire 

Program Management Qualifications Standards and Guide for the five 

Federal wildland fire agencies. 

References: 

o Report of the Interagency Management Review Team, 10/17/1994 

o Report of the Federal Wildland Fire Management Policy and Program 

Review, 12/18/1995 

o Implementation Action Report, USDA and USDI, 05/23/1996 

o Wildland Firefighter Safety Awareness Study Report “Implementing 

Cultural Changes for Safety”, 03/1998 

o USDA Forest Service Jacobs Report, “An Interagency Strategy for 

Fire Management”, 01/2000 

o Brookings Institute’s “Where Have all the Firefighters Gone?”, 

07/2000 

o Federal Fire Policy and Review of 1995 
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Appendix B 

14 Key Fire Management Positions 

Positions Covered by the IFPM Standard: The 14 key fire program management 

positions are listed below. The titles listed are generic; official titles are based on titling 

instructions in the governing position classification standards. They are annotated to 

indicate which are professional, and/or technical positions. 

• Interagency Hotshot Crew (IHC) Superintendent (technical) 

• Helicopter Manager (technical) 

• Senior Firefighter (technical) 

• Engine Module Supervisor (technical) 

• Supervisory Fire Engine Operator (technical) 

• Initial Attack Dispatcher (technical) 

• Wildland Fire Operations Specialist (professional or technical) 

• Prescribed Fire and Fuels Specialist (professional or technical) 

• Prevention and Education Specialist (professional or technical) 

• Initial Attack Lead Dispatcher/Assistant Center Manager (technical) 

• Center Manager (professional or technical) 

• Unit Fire Program Manager (professional) 

• Geographic Area Fire Program Manager (professional) 

• National Fire Program Manager (professional) 

Positions annotated “professional or technical” may be established as professional or 

technical at the GS-9 level and below depending upon whether professional or technical 

knowledge is required, the organizational structure exists, and the competency is met as 

established in the rating guide.