2022 BLM National Aviation Plan

and

BLM Arizona State Aviation Plan
2 

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

organizations, responsibilities, administrative procedures, and policy.

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

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 Arizona 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 Arizona may add their 

Unit Aviation Plan language as a third tier to this document. 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 

website in electronic format. State and District plans provide guidance in addition to the national plan, 

in Arizona all elements of the National Aviation Plan, the State Aviation Plan, and any District plans 

must be met. State and District plans may be more restrictive than higher level plans but may not be 

less restrictive.
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This plan has been:

Prepared by: __________________________________________ Date_______________

 Don Juan Kilmer

 State Aviation Manager

Reviewed by: _____________________________________________ Date_______________

 Kelly Castillo

 State Fire Management Officer 

Approved by: _____________________________________________ Date_______________

 Raymond Suazo 

 State Director 

Office of Fire and Aviation

Arizona State Office

One N. Central Ave.

Phoenix, AZ 85004

Don Juan Kilmer

State Aviation Manager

dkilmer@blm.gov

928-228-3625
4

TABLE OF CONTENTS

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

1.6.1 Handbooks .............................................................................................................................. 12

1.6.2 Plans ....................................................................................................................................... 12

1.6.3 Guides..................................................................................................................................... 12

2.0 Aviation Management Organization ........................................................................................ 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 ............................................................................. 20

2.6 Aviation Positions....................................................................................................................... 26

3.0 Administrative Requirements .................................................................................................. 29

3.1 General ...................................................................................................................................... 29

3.2 Reporting and Documentation Requirements ............................................................................. 29

3.3 Aviation Plans: National, State, Unit, and Project ....................................................................... 29

3.4 Aircrew Orientation Briefing Package ......................................................................................... 31

3.5 Land Use Policy for Aviation Activities........................................................................................ 32

3.6 Budget........................................................................................................................................ 32

3.7 Aircraft Flight Service Ordering................................................................................................... 32

3.8 Aircraft Contracts........................................................................................................................ 35

3.9 End Product Contracts ............................................................................................................... 41 

3.10 BLM Supplemental Fire Aircraft Acquisition.............................................................................. 43

3.11 Cooperator Aircraft ................................................................................................................... 45

3.12 Senior Executive Service (SES) Flights.................................................................................... 46

3.13 BLM Law Enforcement Flights.................................................................................................. 46

3.14 Search and Rescue (SAR) Flights (see also BLM NAP 3.71.1, 5.6, 5.12 & 5.16) ..................... 47

3.15 National Guard and United States Military Aircraft Flights ........................................................ 47
5

3.17 Dispatching BLM Aircraft - Flight Requests .............................................................................. 50

3.18 Aircraft Use Payment Systems ................................................................................................. 52

3.19 Coding for Flight Use Reports .................................................................................................. 53

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

3.21 FBMS....................................................................................................................................... 55

3.22 Aviation Program Reviews ....................................................................................................... 55

3.23 New Program Requests ........................................................................................................... 55

4.0 Aviation Safety Management Systems.................................................................................... 56

4.1 General ...................................................................................................................................... 56

4.2 Safety Management Systems (SMS).......................................................................................... 56

4.3 Policy ......................................................................................................................................... 56

4.4 Risk Management ...................................................................................................................... 60

4.5 Assurance .................................................................................................................................. 62

4.6 Promotion................................................................................................................................... 64

5.0 Aviation Operations.................................................................................................................. 66

5.1 General ...................................................................................................................................... 66

5.2 Policy, Operational Guides and Handbooks ............................................................................... 66

5.3 Public/Civil Aircraft Operations ................................................................................................... 66

5.4 BLM Employees on Non-BLM Aircraft ........................................................................................ 67

5.5 Passengers ................................................................................................................................ 68

5.6 Emergency Exception to Policy .................................................................................................. 69

5.7 Categories of Flight .................................................................................................................... 69

5.8 Flight Planning ........................................................................................................................... 70

5.9 Flight Following .......................................................................................................................... 70

5.11 Overdue, Missing or Downed Aircraft ....................................................................................... 72

5.12 Mishap Response..................................................................................................................... 72

5.13 Transportation of Hazardous Materials..................................................................................... 73

5.14 Invasive Species Control .......................................................................................................... 73

5.15 Fire Chemicals and Aerial Application Policy near Waterways ................................................. 73

5.16 Search and Rescue (SAR) (See also BLM NAP 3.14).............................................................. 74

5.17 Large Airtanker (LAT), Very Large Airtanker (VLAT) and CL-215/415 (Scoopers) Operations.. 74

5.18 Airtanker Base Operations ....................................................................................................... 75

5.19 SEAT Operations ..................................................................................................................... 75

5.20 Foreign Airtanker Operations.................................................................................................... 76
6

5.21 Air Attack, ASM and Leadplane Operations.............................................................................. 77

5.22 Helicopter Operations............................................................................................................... 79

5.23 Aerial Ignition Operations ......................................................................................................... 81

5.24 Wild Horse & Burro Operations (WH&B)................................................................................... 81

5.25 Aerial Capture, Eradication and Tagging of Animals (ACETA).................................................. 81

5.26 Smokejumper Operations......................................................................................................... 81

5.27 Light Fixed Wing Operations .................................................................................................... 82

5.28 Law Enforcement Operations (LE)............................................................................................ 83

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 ...................................................................................................................................... 87

6.2 Management Responsibility ....................................................................................................... 87

6.3 Instructor Standards ................................................................................................................... 88

6.4 Development.............................................................................................................................. 88

7.0 Airspace Coordination.............................................................................................................. 90

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............................................................................................................. 92

7.7 Airspace Deconfliction................................................................................................................ 93

7.8 Airspace Conflicts....................................................................................................................... 93

7.9 Operations along Foreign Borders.............................................................................................. 93

7.10 Airspace Agreements – Memorandums of Understanding........................................................ 94

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
7

8.6 Aircraft Physical Security Requirements..................................................................................... 97

8.7 Aviation Facility Security Requirements...................................................................................... 97

8.8 Exceptions.................................................................................................................................. 99

8.9 Transportation Security Administration (TSA)............................................................................. 99

9.0 Aviation Facilities ................................................................................................................... 100

9.1 General .................................................................................................................................... 100

9.2 Aviation Facilities (Permanent and Temporary)........................................................................ 100

9.3 Temporary Operations Bases................................................................................................... 101

9.4 Safety....................................................................................................................................... 101

9.5 Permanent Facility Construction Planning/Funding and Maintenance ...................................... 101

9.6 BLM Owned/Operated Airstrips ................................................................................................ 101 

Appendix Contents....................................................................................................................... 102

Appendix 1 - BLM National Aviation Organization Directory ........................................................... 103

Appendix 2 - SES Flight Scheduling Guide .................................................................................... 104

Appendix 3 – Latitude/ Longitude Information ................................................................................ 106

Appendix 4 - BLM SAFECOM Management Roles......................................................................... 108

Appendix 5 - OAS Aviation Program Evaluation Schedule ............................................................. 110

Appendix 6 - BLM Cargo Letdown Protocol.................................................................................... 111

Appendix 7 – BLM Fleet Aircraft Standard Operations Procedures ................................................ 148

Appendix 8 – Acting vs Point of Contact......................................................................................... 153

Appendix 9 - Acronyms .................................................................................................................. 154
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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 Arizona. The purpose is to clarify and standardize aviation management procedures and 

operations for all employees in BLM Arizona, independent of the organizational level. This plan is 

supplemental to Departmental Manuals 350-354, BLM Manual 9400 – Aviation Management, and the

BLM National Aviation Plan (NAP).

1.2 Mission Statement

The NAO is responsible for supporting all BLM fire and resource management programs 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 Arizona aviation program provides direction and technical assistance to the State Office, 

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

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

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

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

between Districts, between cooperators within Arizona, and the BLM NAO. 

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

the BLM NAO 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 

with the environmental considerations, available funding and safety of the 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, and respect aircraft 

and the 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 Arizona Aviation Program Objectives

The BLM Arizona 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 is 

one that incorporates principles that are pillars of a safety culture as described in Safety Management 

Systems (SMS).

• 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 a number of 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 the 

Interagency Aviation Strategy approved by the Fire Executive Council (FEC) and NWCG in 2008. 

Changes to the BLM fire aircraft fleet shall be determined by fire planning tools approved by the BLM 

FLT/ELT, by other strategic interagency plans approved by the FEC/NWCG or by the Division Chief 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.

In order 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, long-term contracts, multipleaircraft contracts, sharing of contracts and innovative procurement methods will be explored to achieve 

economies whenever possible. The NAO tracks tactical aircraft utilization along with monitoring fire

activity, fire danger levels and forecasted weather. 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 the State Fire Management Officers (SFMO) and their staff on aircraft 

needs, availability and re-positioning. SFMO will remain informed on the national situation and will 

consult with Fire and Aviation’s NAO and/or the Division of Fire Operations on assignment of BLM 

exclusive use aircraft to ongoing large fires. 
11

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

exclusive use aircraft will be activated and mobilized to meet BLMs fire needs to the extent possible. 

Once authorized and acquired, all BLM fire exclusive use aircraft, other nationally 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. 

1.4.1 BLM Arizona Aircraft Management Strategy 

Exclusive use contracted fire aircraft are funded through the BLM NAO (FA-500) 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 (FMO)

level with coordination with the State Office Duty Officer and the SAM. Assignment of exclusive use 

and supplemental aircraft outside of the State for extended attack or large fires require notification of

the State Office Duty Officer and the SAM. The State Office Duty Officer and the SAM shall coordinate 

with District FMO’s/Duty Officer related to the movement of aircraft within the administrative boundaries 

of BLM Arizona 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 requirement as described in BLM Manual 9400 – Aviation 

Management and the BLM NAP. 

1.6 Policy

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

Aviation Regulations, DOI 350-354 Departmental Manuals (DM), 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). 

1.6.1 Policy 

The BLM Arizona SAP sets forth policy, procedures, and guidance for aviation program/operations 

under BLM Arizona operational control. 
12

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

1.6.3 Guides

• 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 Guide (NSHO PMS 510)

• 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)
13

2.0 Aviation Management Organization

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 Department of Interior 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 so as 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 USDA Forest Service; four Department of the Interior 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 
14

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. 

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. 

NIAC Sub Committees:

• Interagency Aerial Supervision Subcommittee (IASS)

• ATGS Cadre

• Lead plane Cadre

• ASM Cadre

• Interagency Airspace Subcommittee (IASC)

• Interagency Airtanker Base Operations Subcommittee

• 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

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

to provide BLM leadership and expertise in all areas of aviation management. Promote aviation safety, 

standardization and efficiency in support of fire management and non-fire activities. 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 Fire Leadership Team (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. 
15

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

liaison from the Fire Operations Group (FOG), one voting representative each from those states 

with exclusive use air attack aircraft (ID, MT, NV, OR, UT, AK). 

2.2.1 National and Geographic Area Aviation Groups/Committees 

The BLM Arizona SAM is a member of the BLM AMG. The group reviews and develops aviation 

management/operations procedures, policy, and acquisition plans. As the BLM Arizona representative 

to the AMG, the SAM can take forward BLM Arizona aviation issues. 

The BLM Arizona SAM will participate in other national level groups and committees as requested by 

NAO and approved by the SFMO. 

The BLM Arizona SAM serves as the Chair of the Southwest Aviation Committee (SWAC), which is 

chartered under the Southwest Coordinating Group. The SAM serves as a member of the BLM Air 

Tanker Base Committee (ABC), under the NAO. The SAM also serves as a member of the Great Basin

Aviation Committee (GBAC), which is chartered under the Great Basin Coordinating Group. Fire 

aviation issues can be brought forward through the Geographical Area Coordination Center (GACC)

Operations Group or to the GACC Aviation representative. The BLM Arizona SAM serves as the BLM 

Arizona 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). 
16

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 office, 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 governmentwide 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 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.

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 check 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 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. 
17

• Coordinates primary relief for the Fleet Smokejumper aircraft.

• Supervisor for the Air Attack Program Manager, Pilots and Development Pilots located within FA500.

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 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 Manager.

• Develops and establishes agency helicopter operational standards.

• Develops helicopter position requirements and training. 

• 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 Oncall 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 the BLM representative to the Interagency Airtanker Board.

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

NWCG Standards for SEAT Operations. 

• Coordinates with the BLM State Aviation Managers, SEAT contract activation and allocation of 

aircraft.

• Functions as national liaison with State SEAT programs.

• Supervises the National SEAT Coordinator (SECO) when activated.

• BLM advisor to the Interagency Airtanker Base Subcommittee (IABS).
18

• 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. 

• 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 Operations. 

• Provides programmatic oversight to the development of UAS projects/missions.

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

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

Managers and OAS/AQD.

• Develops and reviews exclusive use and on-call UAS contract specifications; coordinates with 

AQD, OAS and State Aviation Managers. 

• Serves (or designates) as the Contracting Officers Representative (COR) for BLM UAS contract 

services.

• Provides BLM input to the Interagency Unmanned Aircraft Systems Guide.

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

• Maintains a roster of qualified BLM UAS personnel.

• Maintains an inventory of BLM owned UAS.
19

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.

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 Interagency Aerial Supervision Guide 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/Check Airman 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 Check Airman personnel.

Air Tactical Supervisors (ATS): 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 ATS courses and mentor trainee ATGS and ATS personnel.

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

airtanker operations.
20

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

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

• Serve as an SME for aerial supervision, airspace coordination, SEAT and air tanker operations.

• Develop and review ASM/Leadplane procedures, make recommendations.

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

Smokejumper Pilots: These positions serve as smokejumper pilots.

• Serves 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.

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. 

• Insures 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 Aviation 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 DM1 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. 
21

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.

• 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. 

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

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

Ensures that acting SAM meets 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 3.8.1). 

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

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

• 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 one 

hour callback provisions.

• Ensure status of all BLM fire aircraft 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 potential long-term assignments off-unit.

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

aircraft to provide appropriate staffing. 
22

• 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 provide the UAM (Unit Aviation Officer (UAO), 

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: 

• 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). 

• 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 3.7.3 for DOI On-Call and USFS Type 1 and 2 helicopters CWN and NAP 3.8.4 for DOI 

Aircraft Rental Agreement. 

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

per BLM NAP 4.3.2 

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

schedulers, current and that coordination with military airspace schedulers is completed prior to 

commencing project 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). 

• Reviews unit SAFECOM reports and facilitates corrective actions. 

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

NAP5.12, 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 all Senior Executive Service (SES) flights and use of cooperator aircraft.

• Coordinates with SAM 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.

• Will submit as required to the SAM, the BLM Law Enforcement Aviation Statistics form for all law 

enforcement aviation operations within their unit (reference BLM NAP 5.28). 
23

• 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, UAM’s will ensure 

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

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 OPM22. 

• 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 arrange for aircraft maintenance as needed.
24

2.5.1 BLM Arizona

The relationship between the SAM and the UAMs is through contract management, aviation safety, and 

program management and is not supervisory. 

The BLM Arizona aviation program is managed at two organizational levels within Arizona: State Office 

and Districts. The State Office Fire and Aviation (AZ-915) is responsible for the statewide aviation 

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

within the District. BLM Arizona has four Districts: Arizona Strip, Colorado River, Gila, and Phoenix. 

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

program and may delegate those responsibilities to the SFMO in accordance with the BLM Delegation 

Manual and the BLM Arizona Delegation of Authority Memorandum. 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 Arizona aviation incident/accident investigation.

• Ensure adequate aviation management staff and funding in partnership with FA-500.

BLM Arizona SFMO: The SFMO has the authority to prioritize 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 Memorandum. Specific responsibilities are described in the 

BLM NAP Section 2.5. The SFMO may further delegate these responsibilities as necessary according 

to the BLM Delegation Manual and the Delegation of Authority Memorandum. 

BLM Arizona 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. 

BLM Arizona State 

Director 

BLM Arizona 

Associate State 

Director

Arizona Strip District 

Manager

Arizona Strip District 

FMO

Arizona Strip District 

Unit Aviation Manager

Colorado River District 

Manager

Colorado River District 

FMO

Colorado River District 

Unit Aviation Manager

Gila District Manager

Gila District FMO

Gila District Unit 

Aviation Manager

Phoenix District 

Manager

Phoenix District FMO

Phoenix District Unit 

Aviation Manager

BLM Arizona State 

FMO 

BLM Arizona State 

Aviation Manager
25

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

NAP Section 2.5: 

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

BLM Arizona operational control.

• Serves as a member of the Southwest and Great Basin Aviation Working Committees which is 

chartered under the Southwest and Great Basin Coordinating Group.

• Serves as a member of the AMG which is chartered under the BLM Fire Leadership Team.

• Serves as a member of the BLM Aviation Base Group under the AMG.

• Serves as a COR for BLM Arizona exclusive use aircraft and assigns a Project Inspector (PI) for the 

contracts. 

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

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

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 may be delegated to the District FMO, UAM, and Dispatch Center Manager according to 

the BLM Delegation Manual and the BLM Arizona Delegation of Authority Memorandum. 

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

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

The Districts are responsible for: 

• Staffing aviation resources at required levels and equipping aviation managers/crews. 

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

• Allocating funds for non-fire aircraft contracts.

• Developing Project Aviation Safety Plans (PASP) for projects within the Districts that utilize aircraft.

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

within the Field Office if delegated the authority by the DM. 

• 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 Field Office personnel as detailed in OAS (Office of Aviation 

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

District FMO: This position is responsible for hosting, staffing, supporting, providing daily 

management, and dispatching all BLM aircraft assigned to their unit. 

District/Zone UAM: The UAM serves as the focal point for the District aviation program. 

• Arizona Strip District has a zone UAM with BLM Utah Color Country District. 

• Colorado River District has a Zone UAM with BLM Phoenix District.

• Gila District has a standalone UAM. 

The UAM has functional responsibilities in the following areas: 

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

• Serves as the primary PI for assigned exclusive use contracts.

• Ensures all aircraft ordering and dispatching occurs through the Dispatch Office. 
26

• 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) 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 non-crewmember” (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 Form (9400-1a (or equivalent)) is utilized, 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)

• Follows the procedures established in the Geographic and National Mobilization Guides. 

• Utilizes required boundary plan checklist (reference IACG 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 nonfire and fire flights. Cooperator aircraft (USFS, state, and National Guard) can be ordered per fire 

master agreements and Unit Aviation Plan. 

• Reference the Interagency Airspace Coordination Guide (Chapter 2, Roles and Responsibilities) for 

specific responsibilities.

Airspace Coordination Specialist (THSP): 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 Interagency Airspace Coordination Guide. Currently, Airspace 

Coordinators are Technical Specialists (THSP). 
27

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

with their 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 is a government employee that is responsible for coordinating, 

managing, and supervising flight operations, and will be designated for point-to-point flights transporting 

personnel. 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 manager is not expected to fulfill all 

the duties of a qualified resource helicopter manager. Rather, he/ she is the government representative 

who coordinates with the pilot regarding the safety and efficiency of the flight. 

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. 
28

2.6.1 Aviation Positions

Aircrew Members: Aircrew members are classified for BLM aviation operations as those persons who 

are trained and qualified to perform an active mission function during flight on an aircraft under BLM 

operational control. Aircrew members are not classified as passengers. Typical aircrew members 

include, but are not limited to: 

• Aerial supervision – Air Tactical Group Supervisor (ATGS), Air Tactical Supervisor (ATS).

• Smokejumpers (Spotters and jumpers).

• Helitack/Rappel (Manager and crew).

• Resource Helicopter Manager (Certification requirements are listed in BLM NAP Section 2.6). 

• Designated observers (fire detection, resource observer, fire recon).

• Law enforcement during non-covert operations.

Aircraft Manager: The Aircraft Managers include fixed wing, helicopter, airtanker base, single engine 

airtanker (SEAT), air tactical and detection personnel. Each Aircraft Manager manages operations per 

contract and appropriate agency guides. 

Flight Manager: The Flight Manager is the government representative who ensures compliance with 

procurement document requirements and is responsible for coordinating the flight(s), and for 

completing the flight invoice. 

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

is considered a passenger. 

Contracting Officers Representative (COR)/Project Inspector (PI): Each aircraft contract has a 

COR designated by the Contracting Officer (CO). The COR for BLM Arizona exclusive use contracts is 

the SAM. The COR duties for DOI On-Call contracts are performed by DOI-AQD. CORs designate 

Alternate CORs or PIs to assist in the day-to-day administration of the contract. 
29

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 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 #4 “Aviation Management” 

located at: https://www.nifc.gov/standards/blm-preparedness-review

• 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 the BLM Aviation Program is found in 350 DM 1 and the BLM NAP 

Section 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/SFMO/SD. For accident notification see BLM NAP Section 4.5. 

• Contract Daily Diary and aircraft payment documents will be maintained by contract field PIs for 

each exclusive use contract. Copies of these documents will be forwarded to the SAM upon 

request. Significant contract performance events are to be documented and forwarded to the SAM

immediately. Contract related documents are to be maintained for six years and three months after 

the final payment for the fiscal year. 

• Each District and Field Office will maintain an aviation reference library and aviation file(s). 

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. 
30

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

aviation organization, responsibilities, administrative procedures and policy. The BLM NAP 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/aviation/av_BLMlibrary.html 

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.).
31

o WH&B

o ACETA

o Law Enforcement operations

o Non-Fire Aviation Activities

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 specifics regarding 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 

9400 Manual. State and unit plans supplement national policies and procedures. State and District 

Offices must not implement policy or procedures less restrictive than the BLM NAP. If more restrictive 

procedure is required, a written request from the SAM 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 

SAP will be updated annually, 30 days after issuance of the BLM NAP. It will be issued, at the State 

level, by Instruction Memorandum (IM), and then submitted to the NAO for inclusion in the BLM 

Aviation website. The BLM Arizona SAP will be disseminated to the field in electronic format. 

Unit Aviation Plans: Each BLM Arizona District will develop a Unit Aviation Plan, a tiered plan from 

the SAP is acceptable. Unit Aviation Plans describe the District aviation management procedures and 

organization. The plans are to be updated annually within 30 days of the BLM Arizona SAP issuance. 

A copy of these plans will be forwarded to the SAM when approved. 

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 Southwest Pilot and Aircrew Communications Guide to which the Districts 

should attach pertinent information about their District and/or area. The UAMs 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, hazard maps, fire behavior information, 

recommended lodging/dining list, maps, etc.). 
32

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 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. 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). 

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). 
33

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 vendor. 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 

Contractor 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 Request Form for DOI Flight 

Services (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 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

The UAM or Aircraft Dispatchers are authorized to order aircraft from the various DOI flight service 

contracts. A courtesy notification to the SAM is requested. Individual Project Coordinators will not 

order aircraft direct from DOI contractors. 
34

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 and 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 deobligate 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. 

3.7.2 Cross Servicing with AQD for Contract/ARA Aviation Services Acquired in Support of NonFire 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). 
35

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. 

• 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

Arizona BLM will utilize cross servicing for all non-fire aviation services acquired under DOI’s On-Call 

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

Aircraft flight services in excess of $150,000 requires an exclusive use aircraft contract, a DOI ADQ

On-Call, or a United States Forest Service (USFS) Call When Needed (CWN) contract. Short-term use 

with costs under $25,000 can use the DOI AQD ARA system or the DOI AQD On-Call contracts. The 

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 (AQD13) 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 Contract Extension 

for any Non-Fire Exclusive Use aviation contract at the same time the original request is forwarded 

to the AQD CO. 
36

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 (FA100).

• 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 AQD13’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 AQD16, 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; LLFA540000LF1000000.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 day by 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 LLFA540000LF1000000.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 five working days 

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.
37

3.8.2.1 Fire Exclusive Use Aircraft Contracts

• The SAM serves as the COR for all BLM Arizona exclusive use aviation contracts.

• At the SAM discretion, Alternate COR designations may be requested in writing from the AQD CO. 

• If a District wants to change the type or capability of their hosted exclusive use contracted aircraft, a 

request is required to be submitted to the SFMO. Upon concurrence, the SFMO will submit a 

request to Deputy Assistant Director, FA-100.

• If an existing contract expires, the host District will coordinate with the SAM and the NAO and

submit a new ADQ-13. 

• Start dates: The Districts determine the start dates for their exclusive use contracts. The COR will 

coordinate with the SFMO, State Assistant Fire Management Officer (AFMO), host unit FMO and 

UAM, NAO, OAS Western Region and AQD/Acquisition Services Directorate CO. 

• 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 agreed to by the BLM and the contractor. Funding of the extension can be 

through severity, suppression, fire rehab, project, or another agency with an exchange of funds 

agreement with BLM. Contract extension on Severity Funding must be requested by the District 

and approved by the NAO 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 

two weeks prior to 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 On-Call 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 C17.4.2.2 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 C17.4.2.1. 

• Reference DOI On-Call C16.1.1“........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.
38

• On Call Wild Horse & Burro and ACETA – Inventory/Census, Herding, Marking/Eradication/High 

Velocity Darting, Net-Gunning/Low Velocity Daring, Wild Horse 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 and 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 use of the USFS CWN 

contracts; however, BLM can use USFS contracted aircraft per the procedures described in the OAS 

OPM-39. For non-fire suppression projects an Interagency Agreement (IAA) is required to be in place 

with the USFS unit providing the aircraft. The OPM-39 describes several tests that must be met before 

USFS contract aircraft can be used in place of DOI-AQD contracted aircraft. 

US 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 GACC Mobilization Guide for specific ordering procedures. Aircraft hired by BLM for a BLM 

operational controlled project or fire incident are to use the DOI AQD Task Order System and Flight 

Invoicing System (AMD-23e). For fire suppression, helicopters will be ordered through normal dispatch 

processes and the National Interagency Coordination Center (NICC) will complete and process the 

AQD-91 Order Request Form/Best Value Comparison. The DOI Fire Suppression Task Order Number, 

valid for the individual vendor will be documented on the AMD-23e Flight Use Invoice in the contract 

number block. It is preferable that the Task Order Number be noted on the IROC order. 

For project use, local units will include at least three vendors or provide the 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. 

The 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 fire suppression activities (projects). These 

orders will be placed by the DOI AQD CO and coordinated with the NICC when the resource order is 

placed with the contractor. The DOI AQD will provide copies of the Task Order to the vendor and local 

unit.
39

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 displayed by state and the database is searchable by: vendor, type of aircraft, special 

use qualification. The availability of ARA helicopters is limited as most 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 the OnCall 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 Source 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 or 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 # 500118615 which allows for immediate hiring using the Fire Suppression Task 

Order number issued pre-season to the vendor. ARA aircraft for non-fire missions require a project 

specific IAA.

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. 
40

This form is located at 

https://doi.opengov.ibmcloud.com/sites/doi.opengov.ibmcloud.com/files/uploads/AQD136A_Evaluation_Report_on_Contractor_Performance%20-%20CPARS.docx

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 CO. The following 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 release of the aircraft, the Aircraft Manager will complete and 

send to the SAM. 

• Exclusive use Contracts - End of season performance evaluations will be completed by the aircraft 

manager and submitted to the SAM and COR, no later than November 1, 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. 
41

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 associated businesses are permitted to do specific to fueling operations. 

The FAA’s Airport Compliance Manual - Order 5190.6B 11.2. Restrictions on Self-servicing 

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. 

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 self-fueling 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.
42

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 (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. 
43

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 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: 
44

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. Assignment of these 

aircraft to ongoing large fires will be the exception and require: 

• Unit FMOs will consult with the appropriate SFMO. 

• SFMOs will consult with NAO and/or the Division of Fire Operations. 

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: http://www.nifc.gov/policies/pol_ref_redbook.html

• 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: 

http://web.blm.gov/internal/fire/fire_ops/toolbox_preposition_process.htm
45

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 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 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)

• Coordinate with the appropriate OAS Regional Director to assist in a search for commercial 

resource availability.

• Identify and locate military aircraft capable of meeting identified needs.

• 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 through FA-500, for concurrence and 

forwarding of the request to OAS West Region Director. 

Any BLM Arizona employee who is requested to participate in mission type aircraft operations by 

another agency shall coordinate with their respective UAM or SAM prior to participation. 
46

3.11.1 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: 

http://www.nifc.gov/policies/pol_ref_redbook.html

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 nonfederal 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 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.

• All point-to-point SES transportation in government aircraft must be evaluated and approved by the 

Department of the Interior (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 type of flights. These flights are requested through the UAM and usually arranged by the 

appropriate local dispatch. 

• Mission type of flights can be arranged without the DOI Solicitor’s immediate involvement. 

Coordination with the SAM is required prior to the flight. 

• Transportation type of flights will require coordination and approval from the DOI Solicitor’s 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. 
47

3.13.1 BLM Law Enforcement (LE) Flights

Law enforcement 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 prior to commencing operations. Line Officers shall be informed of LE aviation activities within 

their area of responsibility. 

LE personnel involved with aviation activities must 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. 

LE personnel will utilize aircraft and pilots that have been 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 Section 

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 non-agency 

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. 
48

Additionally, there are MOU’s for non-fire and LE Counterdrug joint 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 IB’s: 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 MOU’s. 

Additionally, there are MOU’s for non-fire and LE Counterdrug joint missions between DOI and 

DOD. Refer to OAS website for current MOU’s and corresponding IB’s: 

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 MOU’s 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 recorded and submitted on an OAS-2U form.

• Personally owned UAS aircraft are not 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: BLM UAS Website or Interagency Fire UAS 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.

• Program evaluations, per NAP 4.5.3, will include review of the unit’s compliance with UAS 

policies and regulations.
49

UAS Training

• UAS Basic Remote Pilot (IAT, A450) is required for all UAS remote pilots. An FAA Remote Pilot 

certificate is a pre-requisite for this training.

• Incident Operations require successful completion of UAS Incident Operations (S-373).

• Training Links: 

o BLM A-450 (Basic Remote Pilot)

o S-373, UAS Incident Operations

UAS Purchase – UAS purchase requests are routed to the UAS Program Manager 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 FAA or 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 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

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.

3.16.1 Unmanned Aircraft Systems (UAS Flights)

All UAS flights will meet the requirements of BLM NAP Section 3.16, and BLM NAP Section 5.29. At 

the time this document was created, UAS Flights are only authorized for Emergency Use for Fire, Law

Enforcement, and prescribed fires.

3.17 Dispatching BLM Aircraft - Flight Requests

All flights will be arranged by aviation dispatchers and/or appropriate aviation manager with the 

exception of:

• 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 
50

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 on-demand 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 4 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/aviation/av_BLMadmin.html

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 Form 9400-1a is 

required to be completed for all non-fire flights when a PASP is not completed. A 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, then submit a courtesy copy to the Arizona SAM for

recordkeeping. 

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.

• 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.
51

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 Flight Requests (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:

o Incident commander (IC) or designated incident personnel (i.e., AOBD, ASGS, ATGS/ATS).
52

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 be allowed to 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 
53

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 register with the USFS IBS program. IBS can be found 

at: http://www.fs.fed.us/business/ibs

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. 

The following business rules apply to all BLM contracted aircraft: 

3.19.0.1 Cost Coding for Flight Use Reports

The UAMs 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. 

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. 

3.19.2.2 Current Arizona BLM Billee Codes

• Arizona State Office: 6010. 

• Arizona Strip District: 6020. 

• Colorado River District: 6600. 

• Gila District: 6040. 

• Phoenix District: 6030. 

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. 
54

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 “FireCode” (suppression/severity/GACC support code) or;

Entire (Cost Center, Functional Area and WBS) cost string if utilizing Preparedness (LF100), PrePositioning (LF561) or other Non-Fire funds.

All other pay item codes (FT, SM, PD, EP, ET, SC, etc.): 

• Appropriate four-digit only “FireCode” (suppression/severity/GACC support code) or;

• Entire (Cost Center, Functional Area and WBS) cost string if utilizing Preparedness (LF100), PrePositioning (LF561) or other Non-Fire funds.

BLM hired On Call/CWN/ARA fire aircraft: 

Availability: 

• Appropriate four-digit only “FireCode” (suppression/severity/GACC support code) or; 

• Entire (Cost Center, Functional Area and WBS) cost string if utilizing Preparedness (LF100), PrePositioning (LF561) or other Non-Fire funds.

All other pay item codes (FT, SM, PD, EP, ET, SC, etc.): 

• Appropriate four-digit only “FireCode” (suppression/severity/GACC support code) or; 

• Entire (Cost Center, Functional Area and WBS) cost string if utilizing Preparedness (LF100), PrePositioning (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
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3.19.4 Mission Use Codes: Mission Codes apply only to AMD-23E line enties for flight time. (For all 

non flight time entries AQD will input a default mission codes 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 flights 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 it’s 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. 

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 Financial and Business Management System (FBMS) 

All flight use payments are completed by DOI AQD and the Aviation Information Reporting Support

(AIRS) program interfaces with FBMS. All fire chemicals (retardant, foams, and gels) expenditures and 

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. 

SAM’s 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) fixedwing 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 and worn by individuals. If required ALSE is not available, all flights 

will be canceled or postponed. 
57

4.3.1.1 Aviation Life Support Equipment (ALSE) 

See the Interagency ALSE Handbook. If required ALSE is not available, all flights will be 

cancelled 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 or helispot to another established and managed helibase or 

helispot. A managed helibase or helispot is established when there is a helicopter crewmember or 

helibase/helispot manager on the ground at the helibase or helispot before the passengers are 

transported to these locations. All other fire suppression helicopter flights such as reconnaissance, 

Plastic Sphere Dispenser (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 landing in an area meeting NWCG Standards for Helicopter 

Operations requirements. 

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 projects. 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. 

• PASP’s that have a final risk assessment of high will require a SAM review prior to line manager 

approval.

• A courtesy copy of all PASP’s 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 units’ 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 groups’ 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 

exceed 12 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) 
58

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 Managers review and signature (not to exceed 12 months if reoccurring project)

• Project Lead Supervisor’s and line officer’s approval signature (within 12 months if reoccurring 

project)

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 

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 complexity and scale of the project and level of risk. 

Fire suppression aviation operations are documented in the Unit Aviation Plan. 
59

All PASPs will be reviewed and approved by either a Line Officer (State Director, Associate State 

Director for State Office projects or high-risk projects, District Manager, Field Manager, or their 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 high-risk projects will be documented on a PASP.

Project area maps can be completed utilizing GIS with an Aeronautical Sectional Chart background or 

using Google Earth with overlay of the Project area. This will assist the identification of hazards and 

determining of logistics.

PASPs 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 PASPs will be forwarded to the SAM 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.

• 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.
60

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, tasks, 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 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: 

1. 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 
61

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. 

• Note that “time critical” does not mean “hasty” or “uninformed.”

2. Deliberate: This type 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.

3. 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. 

1. 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. 

2. 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. 

3. 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. 

4. 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. 

5. 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 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/aviation/av_BLMsafety.html
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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 Arizona Aviation Safety Management System Assurance Program consists of monitoring 

aviation activities by employees, UAMs, SAMs, and NAO Program Managers. 

• BLM Arizona employees are encouraged to notify their supervisor or UAM when they observe nonstandard aviation activity/events.

• UAM and Aircrew supervisors conduct After Action Reviews (AAR) of projects, fire suppression 

operations, SAFECOM events, and provide Arizona SAM with notification of SAFECOM’s.

• 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 operations 

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 SFMO, District FMO and UAM.

4.5.1 Aviation Safety Assistance Team (ASAT)

During high levels of aviation activity it is advisable to request an Aviation Safety Assistance Team 

(ASAT). An ASAT’s purpose is to enhance risk management, efficiency, effectiveness and provide 

technical assistance while reviewing aviation operations. If an ASAT cannot be filled internally, the 

request may be placed with NICC through established ordering channels using individual overhead 

requests.

An ASAT 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 in-brief. A team should be developed to fit the need of the 

requesting unit and may consist of the following: 

• Aviation Safety Manager

• Operations Specialist (helicopter and/or fixed wing)

• Pilot Inspector

• Maintenance Inspector (optional)
63

• Avionics Inspector (optional)

• Aircraft Dispatcher (optional)

4.5.1.1 Aviation Safety Assistance Team (ASAT) 

The GACC Mobilization Guide describes ordering procedures. Coordinate with the SAM for facilitation 

of ASAT 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 “onthe-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 Arizona 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 Arizona aircraft/aircrews 

that occur under other operational control should have a courtesy copy sent to the SAM and 

responsible Line Officer. 

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 insure 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 identify well qualified individuals 
64

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. 

4.5.4 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 (FA-500) 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. 

SAM’s are responsible for disseminating pertinent aviation safety information, 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

4.6.1.1 Lessons Learned

The UAM should submit any Aviation Lessons Learned from AARs or events to the SAM. The SAM will 

coordinate development of the Lessons Learned document and submit it to the FA-500 Safety and 

Training Advisor. 

The UAM will also notify the DM and FMO of any Lessons Learned that have been submitted.

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 (Airwards)

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, SEAT’s, ASM’s and fire helicopters) are staffed to support local dispatch as 

well as GACC to GACC and national mobilization. 

5.1.1 General

The BLM Arizona 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, Drug Enforcement Agency (DEA), and 

National Guard. The work and environment is dynamic in nature and requires attention to standard 

operating procedures, good mission planning, continual evaluation, and control of the inherent 

hazards/risks.

The BLM Arizona has exclusive use contracted aircraft located in Wickenburg, and Safford, Arizona, 

and St. George, Utah, as well as crews, and management and support facilities for fire management

personnel. The Fire and Aviation personnel at the State Office and at the Districts provide aviation 

guidance and management for all BLM Arizona 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. 
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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

• 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

• 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). 
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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 on-demand operation (353 DM 1 & OPM-15) 

5.5 Passengers 

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 passenger 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 
69

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

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.

A “Special Use flight” is defined as any flight other than point-to-point, conducted with the express 

purpose of performing (or directly supporting) an agency or resource management related task or 

tactical job such as fire suppression, wildlife census, reconnaissance, etc. These missions require 

special techniques, procedures and considerations due to increased risks inherent in such operations. 

Aircraft and pilots must be approved for each specific activity prior to use. Special Use flights require 
70

additional agency planning, active flight following, additional pilot and aircraft inspections and carding, 

and operational supervision by agency personnel (reference OPM-29). 

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 Guide. 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. 

Special Use Flights: 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/nonemergency 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/non-emergency 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 OPM-29)

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. 
71

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 twoway communication (agency radio systems, satellite telephones, satellite texting), via the internetbased Automated Flight Following (AFF) system, or by agency personnel on the scene of an incident or 

project where the aircraft is operating. 

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 

4.II.E.2):
72

• 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. 

• Flights 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 AFFequipped 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.

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 PASPs.

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
73

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 and conduct a simulation exercise. 

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 invasives. Additional operational guidelines for aquatic invasive species can 

be found in the Interagency Standards for Fire and Fire Aviation Operations, Chapter 2. 

5.15 Fire Chemicals and 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: http://www.fs.fed.us/rm/fire/wfcs/index.htm

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). The SDS for each approved fire chemical can be found on 

the WFSC web site. 

Airtanker bases shall have appropriate spill containment measures in place. Consult with the local 

safety officer on requirements. 
74

Products must be blended or mixed at the proper ratio by approved methods prior to being loaded into 

the aircraft by authorized personnel. 

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. 

5.15.1 Fire Chemicals and Aerial Application Policy Near Waterways

Any time an aerial application of fire retardants or suppressants (gels and foams) into waterways or 

inside the 300-foot buffer zone (i.e., 300-feet either side of a stream) occurs, a report by the UAM 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, and submitting a courtesy notification to SAM. 

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 Field Manager or designated position. 

• References: Interagency Standards for Fire and Fire Aviation Operations Chapter 12. 

• The USFS has new 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 

(EIS) and the USFS Record of Decision (ROD) is available at USFS Aerial Application of Retardant. 

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 SAR 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), Very Large Airtanker (VLAT) and CL-215/415 (Scoopers) 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 (MAFFS) and 

cooperator aircraft may be utilized to supplement the federal fleet through established agreements. 

Operational considerations concerning LAT, VLAT and Scoopers can be referenced in the SAS. 
75

5.17.1 Large Airtanker (LAT), Very Large Airtanker (VLAT) and CL-215/415 

LATs are coordinated nationally through the GACC. 

The C-130 Modular Airborne Fire Fighting Systems (MAFFS) are only activated by NICC. The MAFFS 

require 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 Base Operations

The airtanker base manager and/or fixed base manager supervise ground operations in accordance 

with Interagency Airtanker Base Operations Guide (IATBOG). 

The NWCG Standards for Airtanker Base Operations establishes qualifications, certification and 

currency requirements for BLM.

5.19 SEAT Operations

SEATs are a national resource and their primary mission is initial attack. Mobilization is managed by 

dispatch centers with support by a national SEAT coordinator and aviation managers. Operational 

considerations concerning SEATs can be referenced in the BLM Nationally Funded SEAT SOP’s, , 

NWCG Standards for Airtanker Base Operations and the SAS. 

SEAT Manager (SEMG) responsibilities are outlined in the NWCG Standards for Airtanker Base 

Operations, and their training and currency requirements are contained in NWCG PMS 310-1. 

Utilization of remote/satellite SEAT bases must be in compliance NWCG Standards for Airtanker Base 

Operations requirements.

5.19.1 Single Engine Air Tanker (SEAT) Operations

The BLM Arizona utilizes SEATs mainly through exclusive use and On-Call contracts. Arizona also 

closely coordinates with neighboring BLM states for additional SEAT support. The DOI has contracted 

SEATs that are controlled by the National Multi-Agency Coordinating Group (NMAC) and NICC that are

managed by the GACC and local Dispatch Centers when they are within the GACC. If BLM Arizona

has a need for 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 or “Flights”. 

They can drop long-term retardants, fire suppressant gels, foam, or water. The contracts require a 

contractor provided mix and loading unit, which allows for temporary site set up. The BLM provides all 

retardant, gels, foams, and water. SEAT operations will not be conducted from roads or 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, and extended staffing, for SEAT operations as 

requested by the GACC. 
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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 IASG. 

5.21 Air Attack, ASM and Leadplane Operations

These air tactical resources conduct operations in accordance with the IASG and the policies and 

procedures prescribed in the Interagency Standards for Fire and Fire Aviation Operations. 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 ROSS 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 BLM (FMO Duties) Exclusive Use aircraft will be staffed for seven day 

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 rep 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
77

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

The primary function of Aerial Supervision is to manage incident airspace and assist the Incident 

Commander (IC) with fire information, tactical direction of aerial resources and communicate potential 

developing firefighter and public safety situations. The BLM Arizona philosophy is, when available, 

aerial supervision should be dispatched to provide assistance to the IC regarding fire behavior, weather 

monitoring, assisting crews with access, operational mapping, and communication links. Aerial 

supervision can be sent even if other aerial resources are not dispatched (See BLM Operations Alert 

01-10).

• Lead plane or Aerial Supervision Module (ASM) is required to be ordered for congested airspace 

incidents that have retardant dropping operations (See Interagency Aerial Supervision Guide).

• Each Geographic Area will have an Aerial Supervision Geographic Area representative. 

• 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.

• The BLM National Air Attack platform is available to trainee ATGS. A minimum two-week 

commitment is required. Coordination is through the Geographic Aerial Supervision 

Representative. 

5.21.1 Aerial Supervision Personnel

Personnel associated with aerial supervision will be trained to the standards in NWCG PMS 310-1 and 

the IASG. Training and qualification requirements for ASM crewmembers are defined in the IASG. 

Individuals performing duties as an AITS or ATP must be certified and authorized by the BLM NAO. 

AITS’s 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 IASG. 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 for the planes are 

planned, the UAM is the point of contact. 
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5.22 Helicopter Operations

All BLM helicopter operations must be accomplished in accordance with the 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 2-4), except for weather and 1 hour call back. 

Utilization of the R-44 helicopter: Utilization of this model of 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. This IB is located at: 

https://www.doi.gov/sites/doi.gov/files/migrated/aviation/library/upload/IB_2005-02.pdf

National BLM approval is required for new program requests to host the following:

• Cargo Letdown

• Short-Haul

• Rappel

• Fast Rope

• Single-Skid, Toe-in, and Hover Exit/Entry (STEP)

Requests for approval are initiated by a State Office to the NAO with the final approval made by the 

aviation division chief. 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 – 9 helitack personnel

• Type 2 helicopter – 17 helitack personnel

Hoverfill: BLM Exclusive Use helicopter crews’ and aircraft may be allowed to utilize Hoverfill 

operations. Before an Exclusive Use Helitack Program utilizes hover fill operations, training, risk 

management, and operational procedures, must be outlined and approved within their Unit 

Aviation/Helitack Operations Plan. 
79

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:

https://www.nifc.gov/aviation/av_BLMhelicopters.html

Fire Helicopter Program Strategy: The fire helicopter program strategy lay 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 2 helicopter crew staffing at 17

o Type 3 helicopter crew staffing at 9

• Part 27 or Part 29 twin engine helicopter into the helitack fleet

• Type 1 evaluation initiated during the 2017 fire season, and ongoing 

• Creation of a national helitack standard Operating Procedures (SOP) document

5.22.1.1 Helitack

The BLM Arizona has two exclusive use contracts located in Wickenburg, Arizona, and St. George, 

Utah. Other agencies assigned to BLM Arizona incidents may utilize interagency helitack for incidents 

and projects.

5.22.2 Single Skid, Toe In, and Hover Edit/Entry (STEP)

All STEP approved BLM EU Helitack programs should 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 3.23.

5.22.2.1 Single Skid, Toe in, and Hover Exit/Entry (STEP) Program 

The Moki Helitack Program on the Arizona Strip District maintains a STEP Program. The Moki Helitack 

program can utilize STEP when necessary to support medivac, initial attack, and other missions during 

fire operations. The crew maintains an approved STEP Operations Plan and can perform STEP 

operations on cooperator incidents with their concurrence. 

5.22.3 Cargo Letdown

BLM cargo letdown will be conducted in compliance BLM Cargo Letdown Operations (reference BLM 

NAP Appendix 6). 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). 
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5.22.3.1 Cargo Letdown

See the BLM NAP Appendix 6, and the Interagency Helicopter Rappel Guide for specific requirements. 

Approved and trained BLM exclusive use Helitack Crews participate in the cargo letdown program and 

maintain requisite equipment and qualified Cargo Letdown Spotters. 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 set up.

5.22.4 Type-1 Helicopter Mobilization

The BLM type 1 helitack program is a pilot project. In order to thoroughly evaluate the effectiveness of 

this initial attack program, prioritization and prepositioning of the BLM type 1 helitack program must 

occur nationally through a coordinated effort.

The BLM type 1 helitack program’s primary mission is initial attack. This aircraft comes with a 

compliment of crewmembers and flight mission capabilities that are unique to this category of aircraft. 

While most effective at providing rapid initial response, the crew is equipped to respond to extended 

attack incidents and critical need missions on large fires. 

MOBILIZATION

• As with any initial attack resource, The BLM type 1 helitack program managed by the Boise 

Helitack are most effective when prepositioned in areas with predicted or current elevated fire 

danger.

• BLM States may request to preposition Boise Helitack and the Black Hawk, either directly to the 

BLM State Duty Officer hosting the crew, or through the National Duty Officer (208-387-5876). 

Contact the National Duty Officer for preposition funding options.

• Order as Type 1 EU – Limited

• Daily staffing of 16 to 20 Helitack personnel and 5 vendor personnel accompany the aircraft.

• Ground support vehicles include helitack buggies, command vehicles, large fuel tender, and 

mechanic truck with trailer.

• 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 be allowed to 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.

• The BLM State Duty Officer for the state hosting Boise Helitack while on assignment is 

responsible for:

o Prioritizing use of Boise Helitack to meet BLM and interagency initial attack priorities.

o Communicating status/location of Boise Helitack by maintaining the Asset Intelligence 

System (AIS) utilized by the BLM Fire Operations Group (FOG);

o Communicating status/location of Boise Helitack with the Helitack Crew Supervisor, District 

Duty Officers, surrounding BLM State Duty Officers, and the pertinent Geographic Area 

Coordination Center (GACC); and

o Approving requests to utilize the aircraft and crew beyond initial attack and communicating 

approval to the GACC.
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o All initial attack resource orders for the BLM type 1 helitack program should be honored 

regardless of dispatch or jurisdictional boundaries. 

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.

5.23.1 Aerial Ignition

The BLM Arizona has equipment (PSD and Helitorch) and qualified operations personnel within the 

state. Modules (PSD Moki and Weaver Moutain, and Helitorch Weaver Mountain) and equipment

should be ordered through normal dispatch procedures. If ordering from contractors listed on the DOI 

On-Call Small Helicopter Contract, at least one month 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 during herding operations, it must be noted in a PASP and 

approved, according to the Final Risk Level on the associated Risk Assessment and be in compliance 

with IAT requirements for aircrew member and/or Resource Helicopter Manager. No agency 

personnel shall be on board 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 ACETA Handbook and DOI On-Call ACETA contract, 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. 
82

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: 

• 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, Lead plane 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 to 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. https://iqcsweb.nwcg.gov/sites/default/files/inline-files/FedSupplement_2.pdf

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. 
83

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. 

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 (400’ AGL)

• UAS NOTAMs are depicted on-line 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.
84

• 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. 

• 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 Alaska-Office 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 Cub Crafters 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/Lead plane 

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

The BLM Arizona does not have any Fleet aircraft. 
85

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: 

http://www.nifc.gov/policies/pol_ref_redbook.html

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. 
86

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 Bureaus 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 curriculum 

(fire) and Interagency Aviation Training (IAT) non-fire curriculum. 

6.1.1 Fire Training and Qualifications 

The National Wildland Coordinating Group’s (NWCG) guides the fire and fire aviation qualifications. 

Personnel serving in NWCG positions need only meet the qualification and currency requirements 

required in the National Incident Management System, Wildland Fire Qualifications System Guide

(NWCG PMS 310-1), or other interagency guidance as appropriate (smokejumper spotter, ATS, ATGS, 

Lead/ASM pilot, 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 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 (if involved in transport of Hazardous 

materials)

• A-116 General Awareness Security Training (one time)

• A-200* Mishap Review

*Required every three years
87

An employee may be authorized to complete the initial Aircrew Member training on-line, on a case-bycase 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. 

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. Required Training: (*Required every three years)

*M-3 Aviation Management for Supervisors (initial course either in a classroom or online) or; 
88

*M-2 DOI Aviation Management for Line Managers Briefing 

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 

Federal Acquisition Institute Training Application System (FAITAS) and be certified as a COR by the 

Federal Acquisition Institute before performing the duties of the position on a DOI contract. FAC-COR 

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. http://www.fai.gov/drupal/certification/fac-cor

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 

Reference: https://www.nwcg.gov/publications/pms901-1 

Instructors for IAT courses will meet the IAT trainer requirements of the Interagency Aviation Training 

Guide. Reference: https://www.iat.gov/docs/IAT_Guide.pdf

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 candidates of the opportunity and
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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

In order to promote safe, consistent and standardized approaches to airspace coordination, the 

procedures outlined in the Interagency Airspace Coordination Guide will be utilized. Dispatch is 

responsible for advising pilots when multiple aircraft are en 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 (SUA), 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. It is the flight managers’ 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), 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 BLM Arizona State Office Fire GIS personnel and the Southwest

GACC to develop and produce a flight hazard briefing map for all BLM Arizona 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, and 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 TFR’s, 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. TFR’s 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” 

located at: https://publicintelligence.net/faa-disaster-airspace-coordination/

Presidential (VIP) TFR’s (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 

TFR’s 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. 
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7.6 Airspace Boundary Plan

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 area’s 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 close 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 a means of communication, 

coordination, and airspace de-confliction within those areas. 

7.6.2 Boundary Airspace Management Guidelines and Procedures 

A 10-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 and/or 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 National 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 National Air Guard is used to establish initial contact, aircraft are expected to switch to an alternate 

frequency. 
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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. 

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 may obtain scheduling information from DOD units that have special use airspace 

or military training routes and share this information as “hazards” information on the resource order 

when the aircraft are dispatched. For non-emergency flights, information may 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 SUA. 

7.8 Airspace Conflicts

Aviation personnel have a responsibility to identify 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 and local Dispatch Center 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.
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7.10 Airspace Agreements – Memorandums of Understanding

When Special Use Airspace (SUA’s), MTR’s, Slow Routes (SR’s), or Aerial Refueling Routes (AR’s) 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 is provided in the NWCG Standards for Airspace Coordination, Chapter 

12. 

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: http://elips.doi.gov/ELIPS/DocView.aspx?id=1107

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 flightcapable 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.
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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.

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 (aircrew member minimum) involved in the control or use of aviation resources or facilities 

shall complete the appropriate level of aviation security training. A-116 General Awareness Security 

Training is available at www.iat.gov

BLM Specific Policy/Guidance:

BLM HSPD12 Policy: https://www.nifc.gov/aviation/av_BLMsecurity.html

Aviation Security Questionnaire: https://www.nifc.gov/aviation/av_BLMsecurity.html

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. 
97

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

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.
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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 

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 and 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. 
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8.7.1 Aviation Security Policy

Safford, Kingman, and Wickenburg, Arizona and St. George, Utah air bases will have AFF security 

plans in place.

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 Operational Bases 

Operational bases are facilities that are permanent installations and are used on a continuous or 

seasonal basis for aviation operations, including helibases, retardant bases, and airport facilities. 

These include aviation facilities on BLM property and facilities on non-BLM land where BLM has 

primary responsibility for operations, maintenance, and oversight. BLM Arizona has operational bases 

in Safford, Kingman, and Wickenburg, Arizona and St. George, Utah. 

9.1.2 Construction and Maintenance 

The size and extent of aviation facilities should be commensurate with the expected aircraft use at any 

given site. Design criteria provide for operational safety as well as adequate work/rest environment for 

aircrew and personnel assigned. Facilities are constructed and maintained according to BLM Manual 

9400 and BLM Manual 9211. 

9.1.3 Safety 

District and Field Offices shall ensure that aviation facilities comply with safety regulations outlined in 

Departmental manuals, guides, handbooks, and Occupational Safety and Health Act (OSHA). 

Buildings, equipment, and landing surfaces will be inspected by qualified personnel annually to identify 

maintenance or safety deficiencies. Modifications and repairs are made prior to the operational season

and are annotated in the Base Checklist Review.

9.1.4 District Standard Operating Procedure (SOP) 

Each District with management responsibility for an aviation facility will produce a 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 L; and 

Interagency Standards for Fire and Fire Aviation Operations, Chapter 18, as appropriate. 
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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 

Interagency Incident Business Management Handbook chapter 20 (24.2) describes procedures. Only 

procurement officials with warrant authority may enter into agreements. For non-wildland 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 pre-approved 

by the landowner and appropriate BLM management. Each site should be cataloged as to location, 

description, local hazards, use procedures, agreements, and contacts. 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 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 Airstrips on Public Lands located at:

https://www.nifc.gov/aviation/BLMlibrary/RecAirstipPublicLands.pdf
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Appendix Contents

1. BLM National 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) Brad Gibbs Boise, ID bgibbs@blm.gov (208) 387-5448 (208) 863-6219

Deputy Division Chief, Aviation Glen Claypool Boise, ID gclaypoo@blm.gov (208) 387-5160 (208) 859-7506

SEAT Program Manager Vacant

Flight Operations Manager, Bravo 8 Don Bell Boise, ID dbell@blm.gov (208) 387-5185 (541) 604-1043

Helicopter Program Manager Bryan Bitting Boise, ID bbitting@blm.gov (208) 387-5173 (208) 407-6440

Aviation Safety/ Training Advisor Kirk Rothwell Boise, ID mrothwell@blm.gov (208) 387-5879 (208) 914-8483

UAS Program Manager Gil Dustin Boise, ID gdustin@blm.gov (208) 387-5181 (970) 210-6153

UAS Operator Bobby Eisele Boise, ID beisele@blm.gov (801) 814-1357

Air Tactical Pilot, Bravo 5 Andre Mascheroni McCall, ID amascheroni@blm.gov (208) 501-4933

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

Smokejumper Pilot Scott Smyth Boise, ID ssmyth@blm.gov (208) 387-5426 (208) 720-7660

Smokejumper Pilot Craig Pearson Boise, ID cpearson@blm.gov (208) 387-5426 (208) 616-5746

Developmental Pilot Hans Germann Boise, ID hgermann@blm.gov

Developmental Pilot Chris Swisher Fairbanks, AK cswisher@blm.gov

Air Tactical Program Manager Steve Price Boise, ID sprice@blm.gov (208) 387-5140 (208) 863-8946

SEAT Coordinator Kristina Curtis Boise, ID kcurtis@blm.gov (208) 387-5419 (208) 850-2780

Ramp Services Supervisor
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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).
106

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/geocoordinates/

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

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)

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
107

• 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, Minutes and Seconds.

• 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
108

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 and hardcopy 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 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.

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 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.
109

POSITION AUTHORITY RESPONSIBILITIES CRITICAL NOTES
110

Appendix 5 - OAS Aviation Program Evaluation Schedule

2017 –New Mexico, Wyoming

2018 – Colorado, Nevada, California

2019 – Oregon/Washington, Utah, NAO

2020 – Idaho, Montana, Eastern States

2021 – Alaska, Arizona

2022 –New Mexico, Wyoming

2023 – Colorado, California

2024 – NAO, Nevada

2025 – Oregon/ Washington, Utah

2026 – Idaho, Montana, Eastern States
111

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:

1. Initial justification to include nomination of Helicopter Cargo Letdown Spotter Trainee candidates 

(HCLS (T)).

2. Request for Contract Modification from NAO to Contracting Officer (CO) in order to :

a) 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.

b) Add additional “Special Pilot Requirements for Cargo Letdown” language.

3. 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:

a) Risk Management mitigation measures: CLD RA

b) Decision Matrix (under what parameters will this operation be conducted).

c) Detailed operational procedures.

d) Detailed equipment and configuration descriptions.

e) Equipment certification/inspection/retirement intervals and documentation.

f) Personnel training, experience and proficiency requirements and record-keeping

g) Letdown mission documentation and record-keeping.

h) Year-end statistical data on form “BLM Annual Helitack Data”. The form is available for 

download on the BLM NAO website.

i) 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.

The NAO will provide assistance in arranging for Pilot and HCLS(T) certification as well as help with 

obtaining required equipment. 
112

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. 

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.
113

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:

a) Meet the appropriate requirements of the procurement document to include 

having logged additional experience as pilot-in-command as follows:

• 50 hours -- Total hours in make, model and series offered.

• 25 hours -- Rappel, cargo letdown or long line requiring precision placement, last 12 

months.

b) Annually attend a cargo letdown training/refresher training session. This training 

must be conducted and documented by a qualified Spotter and will include:

• Briefing and familiarization on letdown bracket and hard points for the specific model.

• Seating arrangements for cargo and Spotters.

• Cargo placement/location and deployment sequence and method.

• Exit procedures and sequence.

• 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.

• Briefing on any peculiarities of the specific model.

• Demonstrate ability to operate helicopter during three cargo letdown sequences.

• Demonstrate ability to work with Spotter.
114

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 (ie. 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, Petzl® Grillon International®, Yates® 

571-DMM Rappel Master Adjustable Lanyard w/Shock Stop and DMM Captive Eye Carabiners.
115

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.
116

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
117

• 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, retire the figure 8.

• Inspect the figure 8 for aluminum flaking. This 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 double, 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 equipment 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 Mil-W5625K 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 #MTDC-983.

Accordion packs will be constructed as to easily identify a 250 .ft let-down line from a 300 ft. let-down 

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

Inspection:

• Let-down lines will be inspected for wear and burns after cargo deployment, and ends reversed 

for the next let-down sequence.
118

• 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.

o Minimum Weight: 80 lbs.

• Tuna Net

o Maximum Weight: 300 lbs.

o Minimum Weight: 40 lbs.
119

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

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.
120

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:

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

o Good Condition - no cracks or damage, avionics in place

o Eye protection 
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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. 
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• Where possible helicopter should maintain at least 50ft. 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 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 un-arrested 

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 
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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 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
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• Fuel/air filter clog

• Fuel pump failure

• Decrease in rotor RPM

• Compressor Stall (twin engine)

• Severe up or down drafts

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 
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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.

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. 
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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”

• 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.
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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.

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.

o Once the pilot and Spotter concur that the event is no longer of concern cargo 

operations can resume.
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• 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” 

 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. 
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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

• Demonstrate effective communications with pilot 

Key Points 

• Gather cargo letdown equipment 

• Reference procedures, Challenge and Response in 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
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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
135

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
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Position: CARGO LETDOWN SPOTTER Trainee:

6 Cargo equipment orientation

7 Maintain control during deployment

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
137

Position: CARGO LETDOWN SPOTTER Trainee:

6 Assist pilot to position helicopter over cargo 

letdown site

7 Deploy cargo using appropriate verbiage with 

pilot

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
138

Position: CARGO LETDOWN SPOTTER Trainee:

9 High - Typical Terrain

10 High - Typical Terrain
139

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:
140

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:
141

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
142

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)
143

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 Medium

Critical II Serious 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:
144

BLM Cargo Letdown Carabiner Log

ID#: Date Put Into Service: Date Retired: 

Inspection/Use 

Date:

Inspector Signature Remarks/Problems
145

BLM Cargo Letdown Harness Log

CLD Spotter Issued To: 

ID#: Date Put Into Service: Date Retired: 

Inspection/Use 

Date:

Inspector Signature Remarks/Problems
146

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
147

BLM Cargo Letdown Mission Log

Date Operator Mission Cargo 

type/ 

weight

# of 

Letdowns

Carabiner Let 

down 

Line

Harness Figure 

8

Notes
148

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 management of the 
149

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. 
150

• Record flight time under the pay item code “FW” (Wet Rate) on the OASAURM when receiving 

fuel from these locations.

• 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 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. 

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. 
151

• 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. 

• 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. 
152

N618 and N162GC

Scheduled through NAO Flight Operations Manager/Boise Interagency Dispatch Center.

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.
153

Appendix 8 – Acting vs Point of Contact
154

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
155

Appendix 9 - Acronyms

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

ABS Forest Service Aviation Business System

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

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
156

DM Departmental Manual

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 Interior Business Center

IC Incident Commander

IES Illuminating Engineering Society

IFR Instrument Flight Rules

SHO Interagency Helicopter Operations Guide

IHOpS Interagency Helicopters Operations Subcommittee

IHRG Interagency Helicopter Rappel Guide

IIC OAS Safety Investigator-In-Charge

IPAC Intra-Governmental Payment and Collection

IPP Internet Payment Platform

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
157

LOA Letter of Authorization

M3 Aviation Management for Supervisors training course

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 Notice to Airmen

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

ROSS Resource Ordering and Status System

SAM BLM State Aviation Manager

SAP FBMS related Systems, Applications, and Products data processing software

SAR Search and Rescue

SASES Smokejumper Aircraft Screening Equipment & Evaluation Subcommittee

SDS Safety Data Sheets

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
158

TSA Transportation Security Administration

UAM Unit Aviation Manager

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