Working with ESF #4 on Stafford Act Incidents

Transcription

1 Working with ESF #4 on Stafford Act Incidents Command & General Staff November 2017

2 Working with ESF #4 on Stafford Act Incidents Command & General Staff Course Introduction... 2 Module 1: Overview... 3 Module 2: Authorities and Framework Module 3: Agreements Module 4: National and Regional Response Structures Module 4: National and Regional Response Structures Module 6: Responding to an ESF#4 Mission Assignment Module 7: Operational Environment Module 8: Best Management Practices Module 9: Wildfire and Aviation Mobilizations through FEMA Module 10: Course Summery Course Introduction 1

3 Course Introduction Welcome to the online course Working with ESF #4 on Stafford Act Incidents: Command & General Staff. This course will provide command and general staff with a brief introduction to ESF #4 and when it is used. It will then explain the interactions between Incident Management Teams (IMTs) and ESF #4 and the management of incident resources. The course includes 10 modules: 1. Overview 2. Authorities and Framework 3. Agreements 4. National and Regional Response Structures 5. Mission Assignments 6. Responding to an ESF #4 Mission 7. Operational Environment 8. Best Management Practices 9. Wildfire and Aviation Mobilizations through FEMA 10. Course Summary Course Introduction 2

4 Module 1: Overview Welcome to Module 1: Overview. Working with ESF #4 on Stafford Act Incidents This module will provide a description of the purpose of Emergency Support Functions as well as how the Forest Service fits into that landscape. It will then go into more depth on Emergency Support Function #4. At the end of this module, you will be able to: Identify an all-hazards incident. Define the role of ESF #4. Describe the support functions of ESF #4 Module 1: Overview 3

5 ESF Overview Purpose To provide some background, the U.S. Forest Service has been responding to disasters since Forest Service personnel responded to the San Francisco Earthquake You can read the details of that involvement. In 1969, a change required that all Federal agencies become part of the national emergency plan. In 1988, the Stafford Act authorized the President to direct Federal agencies to respond in support of State or local emergency assistance efforts to save lives, protect property, public health, and safety. It has since been refined to where we are today. The purpose of this course is to prepare you to provide support and function effectively during an Emergency Support Function (ESF) #4 activation. Knowledge Check What is the definition of an all-hazards incident? A. A man-made incident that warrants action to protect life, property, environment, and public health or safety and to minimize disruptions of government, social, or economic activities. B. A natural incident that warrants action to protect life, property, environment, and public health or safety and to minimize disruptions of government, social, or economic activities. C. An incident, natural or man-made, that warrants action to protect life, property, environment, and public health or safety and to minimize disruptions of government, social, or economic activities. Module 1: Overview 4

6 Difference between Fire and Non-Fire Working with ESF #4 on Stafford Act Incidents Working in a non-fire incident environment differs from what most are used to in an all-fire environment. In a non-fire environment: Response vs. Recovery We are there to support life threatening, life sustaining, and critical infrastructure needs, which is response. During a fire we typically don't get involved with the actual evacuation efforts; however, in all-hazard we may be supporting evacuation efforts in terms of search and rescue. Even though we don't do recovery during fires, we may be supporting critical infrastructure assessments in an allhazard incident to avert another disaster. Support vs. Direct Command and Control We are supporting someone else's need versus directly commanding and controlling an operational mission. Organizational Structures We are working directly for another agency; for example, if the President declares an emergency, we work directly for the Federal Emergency Management Agency (FEMA) under a Federal response structure to support a local jurisdiction's need. Systems and Processes We utilize other systems and processes. Even though they may be titled and look the same as we know in fire, they may be implemented differently. NOTE: The systems and processes used during a non-fire incident may look the same as the ones used in the fire environment, but they may be implemented differently. Escalation of Response Module 1: Overview 5

7 There is a set process for how the level of response escalates. When an incident occurs: The local first responders will arrive on scene. If the incident is significant, they may notify the correct elected or appointed official and request assistance. The elected or appointed official will activate the local Emergency Operation Center (EOC) and mutual aid plans and will request State assistance if necessary. The State activates the State EOC and coordinates intrastate mutual aid, requests interstate mutual aid, assesses the damage, and requests a presidential declaration. The appropriate FEMA region evaluates the situation and the Governor's request. The FEMA region makes a recommendation to the FEMA Administrator, who then also evaluates the situation and Governor's request. Through the DHS Secretary, the FEMA Administrator makes a recommendation for or against a presidential declaration of emergency or major disaster. Emergency Support Functions The Federal Government and many State governments organize much of their own resources and capabilities under ESFs. This includes certain private-sector and nongovernmental organizations. Module 1: Overview 6

8 FEMA coordinates the ESFs through the National Response Coordination Center (NRCC) and the Regional Response Coordination Centers (RRCCs). ESFs serve as a critical mechanism to coordinate functional capabilities and resources provided by Federal departments and agencies, along with certain private-sector and nongovernmental organizations. Many States have also organized an ESF structure along this approach. The ESFs serve as the primary coordination mechanism to provide assistance in functional areas such as transportation, communications, public works and engineering, firefighting, mass care, housing, human services, public health and medical services, search and rescue, agriculture and natural resources, and energy. Emergency Support Functions List There are 14 emergency support functions. Each function aims at coordinating a specific area. A complete list of the emergency support functions is included below. ESF #1 Transportation ESF #2 Communications ESF #3 Public Works and Engineering ESF #4 Firefighting ESF #5 Information and Planning ESF #6 Mass Care, Emergency Assistance, Temporary Housing, and Human Services ESF #7 Logistics ESF #8 Public Health and Medical Services ESF #9 Search and Rescue ESF #10 Oil and Hazardous Materials Response ESF #11 Agriculture and Natural Resources ESF #12 Energy ESF #13 Public Safety and Security ESF #15 External Affairs This list of ESFs is for Federal response, and most States have developed their own lists of ESFs, which typically align to this but may have additional ESFs pertinent to issues within the State. The National Response Framework (NRF) identifies primary agencies on the basis of authorities, resources, and capabilities. Each ESF is composed of a coordinating agency and primary and support agencies. Support agencies are assigned based on resources and capabilities in a given functional area. The resources provided by the ESFs are consistent with resource-typing categories identified in National Incident Management System (NIMS). Module 1: Overview 7

9 ESF #14, Long-Term Recovery, was superseded by the issuance of the National Disaster Recovery Framework (NDRF) in You can access the NRF (Third Edition) at You can access the complete ESF Annexes at Module 1: Overview 8

10 ESF #4 ESF #4 Purpose The purpose of Emergency Support Function #4 is to: Manage and coordinate firefighting activities, including the detection and suppression of fires. Provide personnel, equipment, and supplies in support of State, tribal, and local agencies involved in wildland, rural, and urban firefighting operations. In addition to their ESF #4 duties, Forest Service and Department of the Interior (DOI) provide support to the remaining 13 ESFs. This support is coordinated through ESF #4. ESF #4 Primary Agency The primary agency for ESF #4 is the U.S. Department of Agriculture, Forest Service (USDA/FS). However, keep in mind that it is a primary agency only for firefighting activities. This is not a common occurrence. The ESF #4 firefighting mission is to: Provide firefighting resources in support of firefighting operations. Provide personnel for fire assistance and suppression planning. Provide command, control, and coordination resources (including Incident Management Teams [IMTs]) in support of firefighting and emergency operations. Keep in mind that, when ESF #4 is activated for a fire, it is usually just to provide FEMA with additional situational awareness and a direct link to IMTs operating at the incident(s). ESF #4 in a Support Role Module 1: Overview 9

11 Commonly, ESF #4 is activated in a support role. Through this support role, ESF #4 is the broker or conduit through which the Forest Service and the Department of the Interior (DOI) support other ESFs and agencies with firefighting personnel, equipment, and other resources. The specific support provided to other ESFs through ESF #4 varies depending on the requesting ESF. Support actions include: Provide resources for communications support (ESF #2) Provide resources for emergency road clearing (ESF #3) Staff and manage FEMA logistics facilities (ESF #7) Provide miscellaneous overhead positions to support FEMA (typically planning, logistics, aviation, ESF #5 or Incident Management Assistance Team [IMAT]) A complete list of the support activities can be found in the NRF, ESF #4 Reference Guide or on the following pages. Prioritizing Missions Module 1: Overview 10

12 There may be times when the demand for firefighting resources is greater than the availability of resources. Consider, for instance, that hurricane season and the western fire season coincide, and there could be a case where a major hurricane impacts the East Coast at the same time a major fire siege is impacting the Western United States. In this case, missions/tasks must be prioritized. Review the order in which ESF #4 prioritizes missions: Agency response mission ESF #4 mission under the National Response Framework (NRF) Support to other ESFs as specified in the NRF Non-specified support to other ESFs and departments/agencies Working with ESF #4 on Stafford Act Incidents We'll look at these priorities in more detail. Prioritizing Mission: Priorities 1 and 2 The first priority of response for ESF #4 resources is response mission. The agencies used in ESF #4 response must be able to meet their statutory requirements and fulfill their legal obligations of protecting life and property. These include: agency Rescue/protection of staff and civilians on Federal lands (National and State forests, grasslands, parks, refuges, etc.) Detection/suppression of fire on Federal and State lands Local emergency response missions The second priority of response for ESF #4 resources is the ESF #4 mission of providing resources in support of State, tribal, and local firefighting activities. Included in this priority is a mission to help other agencies build their capacity to ensure that their missions can be completed without depending on ESF #4 agencies for support. Module 1: Overview 11

13 Prioritizing Mission: Priorities 3 and 4 Working with ESF #4 on Stafford Act Incidents The third priority for ESF #4 resources is providing support to other ESFs, as identified in the NRF. All of the other 13 ESFs list either U.S. Forest Service or DOI, or both, as support agencies for specific functions under their ESF. The fourth priority for ESF #4 agencies is other support not identified in the NRF. This support can be very costly and labor intensive. Any support provided must meet the U.S. Forest Service All- Hazard Response Doctrine. Examples of this type of support provided in the recent past include: Aviation operations expertise and resources Logistics personnel Planning personnel Geographic Information Systems (GIS) personnel and products Caterers, showers, and other contract resources Coordination of local emergency response operations Support to State or local EOCs Support to Federal response teams (such as Urban Search and Rescue Task Forces ESF #9) ESF #4 as Brokers The roles that support FEMA's all-hazard response can be compared to all those involved when building a house. The local government is much like the home owner and the State government is comparable to the home owner's representative. The owner does not delegate any authority to a subcontractor, or even to the contractor. Only the owner's rep can make requests of the contractor, who can then direct the subcontractor to do the work. In this analogy, the ESF #4 is not the home owner or even in charge of the house building project. FEMA is the contractor chosen by the State government to "build the house." The contractor can enlist subcontractors to carry out part of their duties. The Forest Service (represented by ESF #4) are comparable to those subcontractors. The work order (mission assignment) that allows the subcontractors to work on the house comes from the contractor (FEMA). The ESF #4 therefore acts as a broker between FEMA and the agencies providing wildland and structural firefighting resources to fulfill State government requests for assistance. Module 1: Overview 12

14 Knowledge Check Select all that apply. The purpose of Emergency Support Function (ESF) #4 is to: A. Support overall activities of the Federal Government for domestic incident management B. Manage and coordinate firefighting activities, including the detection and suppression of fires. C. Provide personnel, equipment, and supplies in support of State, tribal, and local agencies involved in wildland, rural, and urban firefighting operations. D. Provide centralized management for the role of the National Logistics Coordinator and management of resource support requirements in support of Federal, State, tribal, and local governments. Module Summary You have completed Module 1: Overview. This introduced the basics of the emergency support functions, the purpose of ESF #4 and how ESF #4 prioritizes missions. You should now be able to: module Identify an all-hazards incident. Define the role of ESF #4. Describe the support functions of ESF #4. Module 1: Overview 13

15 Module 2: Authorities and Framework Welcome to Module 2: Authorities and Framework. This module discusses the frameworks and authorities that allow ESF #4 to complete their mission. At the end of this module, you will be able to: Define the Stafford Act in relation to ESF #4. Describe how the National Response Framework is used in response to all-hazard incidents. Identify circumstances that warrant both the Stafford and Non-Stafford Act. The Stafford Act The majority of ESF #4 responses will be conducted under the Stafford Act. The Stafford Act: Covers all hazards, including natural disasters and terrorist events. Provides primary authority for the Federal Government to respond to disasters and emergencies. Gives the President responsibility for coordinating government response efforts. Describes the programs and processes by which the Federal Government provides disaster and emergency assistance to State governments, tribal nations, local governments, eligible private nonprofit organizations, and individuals affected by a declared major disaster or emergency. Click here for how the Stafford Act defines the United States. Response Under the Stafford Act Module 2: Authorities and Framework 14

16 When it is clear that State response capabilities will be exceeded, the Governor can request Federal assistance, including assistance under the Stafford Act. The Stafford Act authorizes the President to provide financial and other forms of assistance to State and local governments, certain private nonprofit organizations, and individuals to support response, recovery, and mitigation efforts following presidential emergency or disaster declarations. Post-Katrina Emergency Management Reform Act (PKEMRA) The Post-Katrina Emergency Management Reform Act (PKEMRA) of 2006 implemented recommendations from a Senate committee's Hurricane Katrina report, which include: Reconstituting FEMA Improving emergency staffing Facilitating better communications and interoperability capabilities among emergency responders PKEMRA clarifies and modifies the Homeland Security Act with respect to the organizational structure, authorities, and responsibilities of FEMA and the FEMA Administrator. Module 2: Authorities and Framework 15

17 PKEMRA established the following additional responsibilities for FEMA: Working with ESF #4 on Stafford Act Incidents Accommodations for Persons with Disabilities o Establish a Disability Coordinator and develop guidelines to accommodate individuals with disabilities. o Add disability and English proficiency to the list of provisions requiring nondiscrimination in relief and assistance activities. Improved Evacuation and Services Coordination o Establish the National Emergency Family Registry and Locator System to reunite separated family members and assist in establishing the National Emergency Child Locator Center to locate missing children after a major disaster or emergency. o Coordinate and support precautionary evacuations and recovery efforts. o Provide transportation assistance for relocating and returning individuals displaced from their residences in a major disaster. o Provide case management assistance to identify and address unmet needs of victims of major disasters. Care of Household Pets and Service Animals o Provide rescue, care, shelter, and essential needs assistance to individuals with household pets and service animals as well as to such pets and animals. Improved Response o Streamline the Federal response process through pre-scripted mission assignments (PSMAs). o In the absence of a specific request or presidential declaration, direct other Federal agencies to pre-position resources and provide support where necessary to save lives, prevent human suffering, or mitigate severe damage ( leaning forward ). o Encourage nongovernmental response partnerships. National Response Framework (NRF) The National Response Framework provides guidance on how we respond as a Nation to all-hazard incidents. The NRF: Module 2: Authorities and Framework 16

18 Is a guide to how the Nation responds to disasters and emergencies Lays out the basis for emergency support functions Describes how response efforts integrate with the five mission areas that the Presidential Policy Directive 8 (PPD-8) identified in the National Preparedness System: o Prevention o Protection o Mitigation o Response o Recovery The NRF is built on scalable, flexible, and adaptable concepts identified in the National Incident Management System to align key roles and responsibilities across the Nation. The NRF describes specific authorities and best practices for managing incidents that range from the serious but purely local to large-scale terrorist attacks or catastrophic natural disasters. The NRF describes the principles, roles and responsibilities, and coordinating structures for delivering the core capabilities required to respond to an incident and further describes how response efforts integrate with those of the other mission areas of prevention, protection, mitigation, and recovery. Response Authorities Non-Stafford Act The Stafford Act governs when and how the Federal Government can respond to all-hazard incidents. However, there are times when an incident does not warrant a Stafford Act major disaster or emergency declaration, such as the avian flu, Deepwater Horizon, and the Space Shuttle Columbia disaster. response authorities that govern these situations include: The Responding Under Primary Missions o Organic Acts o Homeland Security Presidential Directive 20 (HSPD-20): National Continuity Policy Responding on Federal Lands To Support Other Agencies o Economy Act o Service First Agreement Module 2: Authorities and Framework 17

19 Responding on Non-Federal Lands o Cooperative Forestry Assistance Act o Intergovernmental Cooperation Act o U.S.C. Title 42 Chapter 15A Reciprocal Fire Protection Agreements Note: Federal departments and agencies routinely manage the response to incidents under their statutory or executive authorities. Responses under agency jurisdictions that do not require the Department of Homeland Security (DHS) coordination are led by the Federal entity with primary jurisdiction. The National Response Framework coordinating structures and mechanisms, including Emergency Support Functions, may be activated to support these incidents, such as in response to the Space Shuttle Columbia incident when ESFs were activated to support NASA. Knowledge Check Is it possible for Federal assistance to be provided without a presidential declaration of major disaster or emergency? A. Yes B. No Select all that apply. The Stafford Act: A. Covers all hazards, including natural disasters and terrorist events. B. Provides primary authority for the Federal Government to respond to disasters and emergencies. C. Gives the President responsibility for coordinating government response efforts D. Describes the programs and processes by which the Federal Government provides disaster and emergency assistance to State governments, tribal nations, local governments, eligible private nonprofit organizations, and individuals affected by a declared major disaster or emergency. What are the five mission areas that the Presidential Policy Directive identifies in the National Preparedness System? A. Protection, Security, Mitigation, Recall, Response B. Recovery, Mitigation, Prevention, Rescue, Protection C. Prevention, Protection, Mitigation, Response, Recovery D. Repossession, Mitigation, Protection, Response, Recovery Module 2: Authorities and Framework 18

20 Module Summary You have completed Module 2: Authorities and Framework. This module introduced the basic authorities and frameworks that allow ESF #4 to function. You should now be able to: Define the Stafford Act in relation to ESF #4. Describe how the National Response Framework is used in response to all-hazard incidents. Identify circumstances that warrant both the Stafford and Non-Stafford Act. Module 2: Authorities and Framework 19

21 Module 3: Agreements Welcome to Module 3: Agreements. Working with ESF #4 on Stafford Act Incidents This module will detail the agreements in place that allow for a coordinated all-hazard response. This includes state and local agreements, as well as a memo of understanding with the Federal Emergency Management Agency (FEMA). At the end of this module, you will be able to: Identify the different types of State and local agreements. Explain the Statewide Cooperative Fire Agreement that exists between Federal agencies and a specific State. Describe the Memorandum of Understanding and DOI agreements in relation to ESF #4. Describe how firefighting resources are provided to State/tribal/local governments. Agreements Existing State and Local Agreements When an incident exceeds a local capability, the jurisdictional agency will first utilize State and local agreements. There are several types of State and local agreements, including: Automatic Mutual Aid: A basic contract or informal agreement that permits the automatic dispatch and response of requested resources without incident-specific approvals. Local Mutual Aid: An agreement between neighboring jurisdictions that involves a formal request for assistance. Local mutual aid and assistance agreements cover a larger geographic area than automatic mutual aid. In-State Regional Mutual Aid: A regional mutual aid and assistance agreement among multiple jurisdictions within a State. Intrastate Mutual Aid: An agreement (often coordinated through the State) that incorporates State and local government and nongovernmental assets. Interstate Agreements: Assistance provided through the Emergency Management Assistance Compact (EMAC) or other formal State-to-State agreement. State law and jurisdiction may not apply to tribal governments on a reservation or trust lands. Module 3: Agreements 20

22 Click for a note on tribal governments. Knowledge Check Select all that apply. Why might a State or local government enter into mutual aid agreement? a A. No local government can afford to equip for every possible emergency. At some point, an incident may occur that will exceed the capabilities of a jurisdiction. In these instances, local governments can reach out for aid through established agreements. B. Responses to a disaster or other event are typically initiated at the local level, with neighboring jurisdictions coming to each other s aid when needed. C. When the scope of an event or disaster is (or may be) beyond the capabilities of the local jurisdiction, the local government may call on mutual aid and assistance resources. Statewide Cooperative Fire Agreements There is a cooperative agreement between the Bureau of Land Management, Bureau of Indian Affairs, National Park Service, Fish and Module 3: Agreements 21

23 Wildlife Service, USDA/FS, and each State. Each Statewide Cooperative Fire Agreement is based on the Master Cooperative Agreement template and contains essentially the same wording, with minor differences based on specific authorities and responsibilities within each State. The purpose of the Statewide Cooperative Fire Agreement is to document the commitment of the parties to the agreement to facilitate the coordination and exchange of personnel, equipment, supplies, services, and funds in sustaining wildland fire management activities, such as prevention, preparedness, communication and education, fuels treatment and hazard mitigation, fire planning, response strategies, tactics and alternatives, suppression, and post-fire rehabilitation and restoration. In addition to addressing wildland fire management activities, this agreement facilitates improved coordination regarding all-hazard events under the Robert T. Stafford Disaster Relief and Emergency Assistance Act. This agreement documents the commitment of the parties to provide cooperation, resources, and support in the implementation of the National Response Framework. The Statewide Cooperative Fire Agreement is the agreement under which most State and local government resources respond to support ESF #4 mission assignments in other States. Memorandum of Understanding (MOU) FEMA Memorandum of Understanding Following Hurricane Katrina in 2005, several conflicts arose between the Forest Service and FEMA. An audit was conducted by the Inspectors General of both agencies and the conflicts were resolved. One of the recommendations of the audit was the development of a Memorandum of Understanding (MOU) for response support; this MOU was signed in 2011 and updated in The agreement is unique, as the Forest Service is one of the few agencies that has a direct MOU with FEMA. A copy is available is the ESF #4 Reference guide. U.S. Forest Service and FEMA MOU The MOU between the U.S. Forest Service and FEMA: Provides a general framework of cooperation in responding to, coordinating, and financially accounting for major disasters and emergencies. Module 3: Agreements 22

24 Serves as a framework for resolving any potential conflicts about financial accounting in an efficient and constructive manner. Allows the Forest Service to initiate its response to emergencies in support of FEMA without waiting for a signed mission assignment. Formalizes that FEMA recognizes and accepts that USFS will provide support to FEMA following the Forest Service All-Hazard Response Doctrine. It can sometimes take several days before a copy of a signed MA is available from FEMA, so the ability of the Forest Service to mobilize resources immediately upon an appropriate request from FEMA is very important for potential lifesaving and life-sustaining missions. Foundational Doctrine for All-Hazard Response The Foundational Doctrine for All-Hazard Response established several principles as applied to #4 and identified in the MOU. ESF First, the National Incident Management System is the foundation of the response organizations supported by ESF #4. ESF #4 trains other agencies to build their NIMS capabilities. ESF #4 further coordinates and supports all-hazard responses by providing trained personnel to use their skills, capabilities, and assets without requiring significant additional training and preparation. Before committing people and other resources, ESF #4 will conduct a thorough mission analysis of every all-hazard request. All personnel coordinated through ESF #4 will be provided with appropriate risk mitigation (e.g., vaccinations, personal protective equipment [PPE], etc.) to operate in the allhazard environment to which they are assigned. All personnel involved will be supported and managed by an agency leader, agency liaison, or interagency Incident Management Team. Foundational Doctrine for All-Hazard Response: Resources Resources are assigned commensurate with each unit's level of training and the adequacy and availability of equipment. However, providing support to FEMA and other ESFs is predicated on the availability of resources. Missions requested of ESF #4 should be considered and accepted in order of priority: Agency response mission Module 3: Agreements 23

25 ESF #4 mission under the NRF Support to other ESFs as defined in the NRF ESF Annexes Other support not specified in the NRF ESF #4 should also consider accepting emergent missions when human life is at risk, or when there is another clear emergency, and the responders consider themselves capable of assisting without undue risk to themselves or others. Foundational Doctrine for All-Hazards Response: Firefighting Resources Support to cooperators requiring firefighting resources through ESF #4 will be consistent with employees' core skills, capabilities, and training. Federal firefighting support is primarily a response function. Though firefighters and other emergency responders are highly adaptable, further use of their skills during the recovery phase may impact their agency's primary mission. Firefighting resources need to be managed and utilized appropriately so they can be available for primary lifesaving, property protection, and incident stabilization assignments. You'll learn more about this. DOI Agreement and MOU DOI bureaus with firefighting responsibilities and the U.S. Forest Service have two instruments that specifically affect ESF #4. One is an interagency agreement providing for cooperation in wildland fire management activities and in non-fire emergencies as authorized. This agreement allows the use of the closest forces for wildland fire suppression and for Stafford Act responses. The other is an MOU that provides a general framework of cooperation for responding to and Module 3: Agreements 24

26 financially accounting for major disasters and emergencies and for resolving any differences or conflicts regarding this cooperation in an efficient and constructive manner. Specifically, the MOU allows DOI bureaus to initiate a response to emergencies in support of the Forest Service (upon request from FEMA) without waiting for a signed MA or Subtasking Request. Resources Providing Firefighting Resources State/tribal/local governments have the option of requesting intrastate and interstate firefighting assistance and resources, both utilizing existing agreements. Intrastate resources would be requested under local or statewide mutual aid and assistance agreements. Interstate resources, including National Guard resources from other States, would be requested through the Emergency Management Assistance Compact, other compacts, or State-to-State mutual aid and assistance agreements. ESF #4 uses the national firefighting mobilization system, which includes NIMS procedures as outlined in the National Interagency Mobilization Guide. Although resources are integrated within the incident organization, the responsible entity uses its own procedures for ordering, mobilizing, tracking/reporting, and demobilizing its resources. Consequently, resources arrive at the incident through different resource management lanes. Keep in mind that responsibility for the situation assessment and determination of resource needs lies primarily with the local Incident Commander; however, top-down resource requests can occur from the State or Federal level during emergencies and major disasters. Knowledge Check True or False. The purpose of the Statewide Cooperative Fire Agreement is to document the commitment of the parties to facilitate the coordination and exchange of personnel, equipment, supplies, services, and funds in sustaining wildland fire management activities. A. True B. False True or False. Intrastate resources would be requested through the Emergency Management Assistance Compact (EMAC), other compacts, or State-to-State mutual aid and assistance agreements. A. True Module 3: Agreements 25

27 B. False Module Summary Module Summary You have completed Module 3: Agreements. This module discussed the agreements and MOUs that Forest Service has with various agencies. You should now be able to: Identify the different types of State and local agreements. Explain the Statewide Cooperative Fire Agreement that exists between Federal agencies and a specific State. Describe the Memorandum of Understanding and DOI agreements in relation to ESF #4. Describe how firefighting resources are provided to State/tribal/local governments. Module 4: National and Regional Response Structures Welcome to Module 4: National and Regional Response Structures. This module will explain the declaration process for emergencies and major disasters. Additionally, it will go into the response structures in the Federal government. At the end of this module, you will be able to: Identify the four stages of the emergency and major disaster declaration process. Identify the response structures of the Federal Government. Describe the breakdown of FEMA regions. Define the Unified Coordination Group. Describe the JFO and the purpose it serves in all-hazard response. Define the Incident Management Assistance Teams. Module 4: National and Regional Response Structures 26

28 Declaration Process for Emergencies and Major Disasters Declaration Processes As you may recall, the Stafford Act authorizes Federal government to respond to natural disasters and national emergencies. The processes for declaring an emergency or a major disaster are similar, but not identical. the Note that in the event of a catastrophic incident, the steps may be expedited. Ordinarily, only a Governor can initiate a request for a presidential emergency or major disaster declaration, but in extraordinary circumstances, the President may unilaterally declare a major disaster or emergency. The steps are: The Governor must declare a state of emergency for all or part of the State. OR FEMA/Federal and State representatives complete a Preliminary Damage Assessment (PDA). The Governor requests assistance. FEMA reviews the request and makes a recommendation. The President makes an emergency declaration, if warranted. Response Structures of the Federal Government Federal Response Structures You have reviewed the declaration processes for emergencies and major disasters. Now let's take a look at the response structures of the Federal Government. Take a look at the image and notice that the NRCC, RRCC, and JFO are the places where ESF #4 works within the National Response Framework. ESF#4 representation may also be requested at the state or local EOC. Module 4: National and Regional Response Structures 27

29 National Response Coordination Center The NRCC is FEMA's primary operations center responsible for coordinating Federal operational support, maintaining a common operating picture (COP), and coordinating national resources. The NRCC is a multiagency center that coordinates the overall Federal support of major disasters and emergencies, including catastrophic incidents. During the initial stages of a response, FEMA will, as part of the whole community, focus on projected, potential, or escalating critical incident activities. Regional Response Coordination Center The RRCC is a standing multiagency center that FEMA operates in each of the 10 FEMA regional offices. Staffed by a Regional Response Coordination Staff (RRCS), the RRCCs are the primary situational awareness and coordination center for support to FEMA's incident management at the regional level and are the focal points for regional resource coordination. The RRCCs coordinate regional response efforts and maintain connectivity with State Emergency Operations Centers (EOCs), State fusion centers, Module 4: National and Regional Response Structures 28

30 and other Federal and State operations and coordination centers. The NRCC provides coordination of national response resources and assets between RRCCs when an incident spans multiple FEMA regions. Roles in Response FEMA Regions There are 10 FEMA regions covering all States, territories, and the freely associated states. Each region is headed by a Regional Administrator. Regional offices: FEMA's permanent presence for communities, States, and territories. Develop all-hazard operational plans and generally help States and communities become better prepared. Each regional office has a Regional Response Coordination Center, which is the coordinating structure for that region. ESF #4 ties directly into that FEMA regional structure. FEMA regions play a critical role in response by performing the following activities: Coordinating Federal regional response efforts Notifying FEMA's national leadership of resource requirements Supporting development of a common operating picture (COP), which requires the region to establish and contribute its own situational awareness for potential and actual incidents Deploying and tracking assets and resources in support of disaster response operations. Unified Coordination Group The Unified Coordination Group leads the Joint Field Office (JFO). The Unified Coordination Group typically consists of the Federal Coordinating Officer, State Coordinating Officer, Defense Coordinating Officer (DCO), and senior officials from other entities. The senior officials have primary statutory or jurisdictional responsibility and significant operational responsibility for an aspect of an incident (e.g., the Senior Health Official or Senior Federal Law Enforcement Official, if assigned). If a JFO were established because of a wildland fire situation, a senior wildland fire official would be part of the Unified Coordination Group. Module 4: National and Regional Response Structures 29

31 Within the Unified Coordination Group, the FCO is the primary Federal official responsible for coordinating, integrating, and synchronizing Federal response activities. The remainder of the interagency staff at the JFO, including the ESFs, is called the Unified Coordination Staff. Unified Coordination Group Responsibilities Responsibilities of the Unified Coordination Group and Unified Coordination Staff are to: Establish an immediate communication link between Federal, State, and local governments Meet quickly and establish shared situational awareness Ensure effective coordination between Federal, State, and local assets Create a shared set of incident-related priorities Approve a shared list of critical resources Review and approve the Unified Situation Report(s) Review and approve the Unified Action Plan(s) Approve requests for additional resources and release of resources Keep track of costs Authorize release of information to the media Joint Field Office The JFO is a temporary -- but potentially longstanding -- Federal facility that provides a central location for the coordination of Federal, State, tribal, and local governments and private-sector businesses and nongovernmental organizations (NGOs) with primary responsibility for response and short-term recovery. The JFO is the primary Federal incident management field structure used to coordinate response. Once the JFO is established, the response coordination role of the RRCC for the specific emergency or major disaster transfers to the JFO. When incidents impact the entire Nation or multiple States or localities, a separate JFO will be established for each affected state. In these situations, coordination will occur following the principles of Unified Area Command. Module 4: National and Regional Response Structures 30

32 Personnel from Federal and State departments and agencies, other jurisdictional entities, privatesector businesses, and NGOs may be requested to staff various levels of the JFO, depending on the requirements of the incident. The JFO is organized, staffed, and managed in a manner consistent with National Incident Management System principles. However, the Unified Coordination Group is always in a leadership position. Incident Management Assistance Teams FEMA Incident Management Assistance Teams are rapid-response teams composed of FEMA emergency management specialists responsible for supporting, exercising, analyzing, and executing disaster response. FEMA IMATs support the initial establishment of a unified command and provide the situational awareness for Federal and State decision-makers crucial to determine the level and type of immediate Federal support that may be required. IMATs are made up of FEMA personnel, but additional personnel may be drawn from ESFs and Federal department and agency staff according to established protocols. FEMA has three National IMATs, and each FEMA region has at least one Regional IMAT. Remember, a FEMA IMAT is different than an IMT; they have different roles, different skill sets, and different capabilities. In response to an actual or potential emergency or major disaster, a FEMA IMAT: Establishes a Federal presence to support State/local response organizations. They may be located at one of these places: o State EOC o Interim Operating Facility (IOF)/Joint Field Office (JFO) o Other locations based on the incident Coordinates interagency Federal response and recovery efforts in support of State and local governments. Performs situational assessment. In response to a no-notice event, the FEMA Regional IMAT typically deploys to the affected State EOC (making it the IOF), and members of the IMAT Logistics Section identify, procure, and establish a JFO to move coordination efforts into. This process usually takes several days. The IMAT utilizes the NIMS/ICS (Incident Command System) structure. The IMAT leader is the Federal Coordinating Officer. Module 4: National and Regional Response Structures 31

33 Knowledge Check Which of the following is not a step in the process for declaring an emergency? A. FEMA Recommendation B. Governor s Request for Assistance C. Local or state emergency declared D. FEMA requests state level assistance E. Presidential Declaration The is FEMA s primary operations center responsible for coordinating Federal operational support maintaining a common operating picture (COP), and coordinating national resources. A. National Response Coordination Center (NRCC) B. Emergency Management Assistance Compact (EMAC) C. Statewide Cooperative Fire Agreement D. National Response Framework (NRF) There are FEMA regions covering all States, territories, and the freely associated states. A. 7 B. 8 C. 9 D. 10 Module Summary Module Summary You have completed Module 4: National and Regional Response Structures. This module discussed the declaration process for emergencies and major disasters, Module 4: National and Regional Response Structures 32

34 the Federal response structures, and our role in response. You should now be able to: Identify the four stages of the emergency and major disaster declaration process. Identify the response structures of the Federal Government. Describe the breakdown of FEMA regions. Define the Unified Coordination Group. Describe the JFO and the purpose it serves in all-hazard response. Define the Incident Management Assistance Teams. Module 4: National and Regional Response Structures 33

35 Module 4: National and Regional Response Structures Welcome to Module 5: Mission Assignments This module will explain purpose of mission assignments and how IMTs use mission assignments. At the end of this module, you will be able to: Define mission assignments. Describe the role and process of mission assignments. Describe MA Task Orders (MATO) and when they are used. Identify the purpose of pre-scripted mission assignments. Mission Assignments Mission Assignments The Stafford Act provides FEMA the delegated authority to direct other Federal departments and agencies to provide disaster assistance to State local jurisdictions impacted by disasters or other emergencies. The process through which this is known as mission assignments. An MA is: and occurs A work order issued by FEMA to another Federal agency directing the completion of a specific task and citing funding, other managerial controls, and guidance. (44 CFR 206.2(18)) Given in anticipation of, or response to, a presidential declaration of an emergency or major disaster. A method to address needs by utilizing other Federal agencies and their resources. Used to support States and local jurisdictions to provide emergency short-term assistance. An MA is not a grant, interagency agreement, or contract to a Federal agency but a reimbursable work order that can be performed before and/or after a declaration. MAs may be issued by FEMA at the NRCC. Module 4: National and Regional Response Structures 34

36 Purpose MAs are issued to fulfill a State's request for Federal assistance to meet unmet emergency needs or a Federal request to support disaster operations. Remember that FEMA will not issue mission assignments or reimburse other Federal departments and agencies for work accomplished under their own statutory authorities. In order to respond more effectively, FEMA may issue mission assignments prior to a formal declaration of a major disaster or emergency to stage resources and commodities that may be needed. For example, in advance of an approaching hurricane where landfall appears likely, FEMA may issue a mission assignment to the FS through ESF #4 to pre-position an IMT and crews so they are in place and ready to clear roadways of fallen trees to provide emergency access for emergency responders. Mission assignments can be issued only when there is an event for which some type of declaration is imminent or has been declared, not for day-to-day activities or long-term studies. Process There are four steps in the mission assignment process. 1. Resource Request Process The specific need is identified at the local level and is submitted to the State. If the State cannot fill the need, then the State submits the request via a Resource Request Form (RRF) to FEMA. FEMA evaluates the request to determine if it can be met internally using FEMA resources or externally by a specific ESF. FEMA negotiates with the specific ESF to determine if they can perform the mission. 2. MA Issuance Module 4: National and Regional Response Structures 35

37 3. MA Execution: If an MA is issued, then the tasked Federal agency performs the work. 4. MA Billing and Closeout: Funds are exchanged per the mission assignment agreement. Note that the Incident Business Coordinator manages the MA billing and closeout process. The whole process is handled electronically. The State uses an electronic system to gather the requests and to send them to FEMA for action. FEMA utilizes WebEOC to manage all missions and situational awareness for a specific incident. MA Task Orders MA Task Orders, or MATOs, are issued to provide specifics to broad mission statements provided in the MA. MA Task Orders: Are used when the request falls within the Statement of Work of an existing MA. Prevent the issuance of multiple MAs for the same SOW. Should be coordinated through FEMA operations. Task orders do not have to be submitted on an official MA Task Order Form. They are valid when provided in any written form. Some of the ESF #4 Pre-Scripted MAs (PSMAs) are intended to have MATOs issued under them. For example, the PSMA for Command and Control Support is very general and, if multiple IMTs or Command & General Staff members are needed at different locations during an event, MATOs indicating the type of teams (or individuals) needed and the location where they are to work will be issued. (In this case, the MATOs are pre-scripted as well.) Module 4: National and Regional Response Structures 36

38 Pre-Scripted MA There are a number of commonly used mission assignments that may be issued. In an attempt to prevent ESFs from constantly re-inventing the wheel, pre-scripted mission assignments were created. PSMAs help in: Facilitating rapid response Standardizing commonly used mission assignments Standardizing cost estimates for specific missions FEMA and some Federal agencies have mutually agreed to Statements of Work, projected cost estimates, and time lines to be used for common missions or for catastrophic incidents where there is minimal time for negotiating an MA. These PSMAs can also be used as a general guideline or template for a new MA to fit other mission requirements of an incident. While typically used verbatim, PSMAs can be tweaked as necessary to fit specific needs of an incident. PSMAs may also be used with pre-scripted Mission Assignment Task Orders for specific types of resources or tasks. During an activation, FEMA identifies and issues the PSMA, usually without negotiation. If there is a mission for which there isn t a PSMA, FEMA and the ESF work together to develop the SOW. PSMAs have been created for the following assignments: Activate USFS and DOI to the FEMA NRCC Activate USFS and DOI to the FEMA RRCC, JFO, or IMAT Pre-position firefighting resources for firefighting support Pre-position resources for emergency road clearing Provide firefighting support Provide fire suppression planning Provide Command & Control support (MATOs for IMT1, IMT2, AHIMT/Type 3 Organization/Area Command/National Incident Management Organization (NIMO), and individual Command and General Staff personnel) Provide Logistics Facility support (MATOs for Incident Support Base and Federal Staging Area) Provide emergency road clearing Module 4: National and Regional Response Structures 37

39 Provide ESF #2 Radio Starter System support The full PSMAs can be found in the PSMA library on WebEOC and on the ESF #4 web page. Module Summary Module Summary You have completed Module 5: Mission Assignments. This module introduced mission assignments and how they are used. You should now be able to: Define mission assignments. Describe the role and process of mission assignments. Describe MA Task Orders (MATO) and when they are used. Identify the purpose of pre-scripted mission assignments. Module 4: National and Regional Response Structures 38

40 Module 6: Responding to an ESF#4 Mission Assignment Welcome to Module 6: Responding to an ESF #4 Mission Assignment. This module will discuss how the FS prepares for and responds to an ESF #4 mobilization. This includes the position qualifications, interactions between ESF #4, IMTs, and incident resources and how each fit into FEMA's organizational structure. At the end of this module, you will be able to: Identify the four ESF #4 specific position qualifications. Describe how ESF #4 interfaces with IMTs. Identify how IMTs fit into FEMA's organizational structure. Describe how ESF #4 uses risk management principles to reduce potential risks while deployed. Responding ESF #4 Position Qualifications There are four ESF #4-specific position qualifications based on the functions that the qualified position may need to perform: ESF #4 Primary Leader (ESFL) must have Command and General Staff or Fire Program Management experience and must be Forest Service employees. This is because the Forest Service is the primary agency for ESF #4 and an ESFL may be responsible for authorizing the use of Forest Service resources and the expenditure of Forest Service funds. ESF #4 Support Wildland (ESFW) must have wildland fire expertise and be employees of the Forest Service or DOI. ESF #4 Support Structure (ESFS) must have structure fire expertise at the chief officer level and be employees or representatives of U.S. Fire Administration. ESF #4 Support Administrative (ESFA) may be employees of the Forest Service, DOI, or USFA. You can view the Federal Wildland Fire Qualification Supplement to NWCG PMS at the NWCG Website under the Publications tab. Module 6: Responding to an ESF#4 Mission Assignment 39

41 ESF #4 Staffing Chart Depending on the incident, the ESF #4 staffing chart may change. However, it will always contain one person qualified at the ESF #4 Primary Leader (ESFL) level to fill the Fire Unit Leader position. In addition, depending on the staffing needs, the Fire Specialist position(s) may be staffed with personnel having any combination of ESFL, ESFW, ESFA, ESFS, or other appropriate position qualifications. Let's review two recent examples. During Hurricane Sandy in 2012, 26 ESF #4 qualified personnel worked directly with FEMA in various positions at the NRCC, three RRCCs, two Joint Field Offices, and two State EOCs. During the 2014 Washington wildfires, only one ESF #4 qualified person worked directly with FEMA supporting the RRCC. IMT Interactions When an IMT(s) is assigned, the Regional/Area Fire Director may provide direction outlining expectations and protocols specific to the MA. This may be communicated via a Letter of Expectation, Designation of Responsibility, or other similarly titled document. It is important to remember that the ESF primary agency has no direct jurisdictional responsibility for the incident; rather, they are supporting FEMA, who in turn is supporting State, tribal, and/or local jurisdictions. Therefore, the expectations may be different from the Delegation of Authority received when an IMT is managing a wildland fire for an agency that has jurisdictional responsibility. An IMT may also receive specific direction and intent from the State/tribal/local entity they are supporting that describes the tasks the IMT will be requested to perform. That direction and intent will be incorporated as part of the regional/area expectations. It is important to remember that the expectations to perform under the MA are at the primary agency level, not the level of the entity that is describing the specific tasks to be performed. The Region/Area ESF #4 Coordinator is responsible for providing an in-briefing and closeout for the IMT. Often, the Coordinator will want the Fire Unit Leader (or other ESF #4 Lead) to participate at the Module 6: Responding to an ESF#4 Mission Assignment 40

42 in-briefing and/or closeout. The in-briefing and closeout are best conducted in person but may be done over the phone if the situation dictates. The in-briefing may also occur in conjunction with the local entity. If this happens, it is important to address the requirements of the primary agency that may not be specific to the local entity. If possible, ESF #4 or the region/area should attend the local entity closeout. ESF #4 needs to work with the region/area to ensure that a closeout is conducted. The closeout should be specific to the overall MA and meet the needs of the primary agency. When an IMT(s) is assigned, ESF #4 needs to work closely with the IC(s) to develop communication and operating processes. Those should include: Daily briefing situational and operational updates (incident and ESF #4 levels), emerging needs, and issues Operational activities and tasks keeping informed of changes to ensure working within the scope of the MA Information requirements daily costs, Incident Action Plans (IAPs), 209s, demobilization plans Ordering and procurement protocols what can be ordered directly vs. what needs ESF #4 approval, sideboards Information protocols what can be said and by whom, coordination with FEMA (confirm that this information is provided to the PIOs on the IMT) Accident and injuries communicating with ESF #4, primary agency and individual(s) agency, on-site support being provided, and long-term needs Documentation requirements primary agency needs (supporting documentation of actions taken under the MA and what the agency is responsible for after the MA is completed) Points of Contact (POCs) with different parts of FEMA field operations, IMAT, Liaison Officers (LNOs), USAR Incident Support Team (IST), Public Affairs (ESF #15) Closeouts local entity and primary agency Liaison to Incident Management Teams When IMTs are assigned to a mission through ESF #4, it may be necessary to provide them with direct ESF #4 support at their level. This ESF #4 Module 6: Responding to an ESF#4 Mission Assignment 41

43 Liaison would work with the Incident Command (IC) as a subject matter expert (SME) to assist the IMT in meeting the requirements and limitations of a FEMA assignment and would be the communications link between the IMT and the Fire Unit Leader. This individual works directly for the ESF #4 (who may be at the RRCC or the NRCC) and is not part of the IMT organizational structure, but remains with the IMT until direct support is no longer needed. The individual can: Work with the IMT to understand the scope and intent of the MA. Help the IMT understand their roles and responsibilities within FEMA's organizational structure. Facilitate communications within FEMA's structure and ESF #4. Facilitate issues or needs that may arise. Note: Specific ESF #4 qualifications were discussed earlier in this module. Letter of Expectation When you are issued a mission assignment to an incident requiring a coordinated Federal response for assistance, you should expect a letter from the IC and ESF #4 Coordinator detailing what to expect and what is expected of you. You can read a Letter of Expectation example in full. Module 6: Responding to an ESF#4 Mission Assignment 42

44 How IMTs Fit in FEMA s Organizational Structure Remember how ESF #4 was likened to a subcontractor in the process of building a house? Let's also consider where you as an Module 6: Responding to an ESF#4 Mission Assignment 43

45 IMT member fit into the construction process. Working with ESF #4 on Stafford Act Incidents Every worksite needs an experienced foreman to oversee the workers and make sure things are properly managed and progressing according to plan. The subcontractor assigns the specific tasks to the workers through the foreman. The Incident Commander is the experienced personnel that manages the IMT and crews. The foreman (Incident Commander) and their crew (IMT and others) work on behalf of the subcontractor (ESF #4), not the home owner (local government). Recall that the home owner does not actually delegate any authority to a subcontractor, or even to the contractor. The IMT and crew carry out the wishes of the contractor (FEMA) through the desires of the subcontractor (ESF #4). Risk Management Within all-hazard response (or ESF #4) environments, agency personnel may encounter situations in which there is an imminent threat to life and property outside of their Agency's jurisdiction. These environments include scenarios ranging from being first on scene to an accident, to committing Agency resources to protect local Module 6: Responding to an ESF#4 Mission Assignment 44

46 communities. Acceptable risk is risk mitigated to a level that provides for reasonable assurances that the all-hazard task can be accomplished without serious injury to life or damage to property. Every individual has the right and obligation to report problems affecting his or her safety and has the right to contribute ideas to correct the hazard. When an individual feels an assignment is unsafe, he or she has the obligation to identify, to the degree possible, safe alternatives for completing that assignment. Turning down an assignment is one possible outcome of managing risk. All responders are therefor expected to use their judgement and respond appropriately. Module Summary Module Summary You have completed Module 6: Responding to an ESF #4 Mission Assignment. This module detailed the specifics of response, including staffing charts, and interfacing with IMTs. You should now be able to: Identify the four ESF #4 specific position qualifications. Describe how ESF #4 interfaces with IMTs. Identify how IMTs fit into FEMA's organizational structure. Describe how ESF #4 uses risk management principles to reduce potential risks while deployed. Module 7: Operational Environment Welcome to Module 7: Operational Environment. This module will discuss how ESF #4 activations are different from wildfire activations, as well as how as well as appropriate missions during ESF #4 activations. At the end of this module, you will be able to: Identify the differences between fire norms and other mission norms. Describe the nature of non-fire incidents. Identify the differences between mission creep and mission evolution. Module 7: Operational Environment 45

47 Explain the components and obstacles of situational awareness. Operational Environment Fire Norms vs. Other Mission Norms Federal, State, and local responders from all disciplines operate using National Incident Management System (NIMS) principles and procedures during incidents of all types, sizes, and complexities. While incident organizational structures may look similar, the implementation may be different from how it is done from a wildland fire perspective. In the wildland fire environment, there are processes and protocols that become part of how personnel from wildland fire agencies normally respond. When involved with non-fire incidents, however, personnel mobilized through ESF #4 are supporting other jurisdictional agencies. These agencies and how they respond are based on their processes and protocols that have been developed for a specific mission and may be different from those practiced by wildland fire agencies. While these protocols and processes may be different, it is important to stay within your own agency lane. That lane, unlike wildland fire, would probably not encompass the entire incident or all aspects it. In other words, response actions must be based on the specific mission assigned to the individual's agency and on what that individual is trained and equipped to do. For example, State and Federal wildland fire agencies do not train or equip their employees to directly conduct urban search and rescue (US&R) missions. Therefore, ESF #4 should not accept an MA to conduct a US&R mission, but should rather assist in supporting others who have that capability. Significant and Complex Events Non-fire incidents can be significant and complex events. The area of impact can be small or extensive, but the magnitude of the impact at any scale can be more complex and significant than what is dealt with in fire. These are some of the factors that influence this complexity: The response to these incidents may be significant, as missions typically involve actions related to saving and sustaining lives. Multiple parties may have jurisdictional responsibility, and the parties may or may not routinely work together or may not have Module 7: Operational Environment 46

48 experience responding (independently or collectively) to a significant event. Political interest may drive the response and course of action. Political decisions and commitments are sometimes made, and it is up to the primary and supporting agencies to support these decisions. While these decisions may or may not provide an effective response for the incident, the primary and supporting agencies have to figure out how to incorporate them into their course of action. The operational environment can be very different from the fire environment in which wildland fire resources normally respond. Some individuals may have a life-changing experience or have their norm altered. Mission Creep vs. Mission Evolution ESF #4 more often mobilizes resources to support other agencies rather than for a wildland or structure fire need. That is because the expertise that has been developed to support a major wildland fire response can be applied to any type of disaster. For example, wildland fire resources can bring expertise in command and control, logistics, planning, and security, among other areas. When wildland fire agencies are mission assigned to perform these tasks, it is sometimes viewed by some as mission creep, as there is no direct wildland fire component. For example, when a wildland fire IMT was briefing the local Director of Homeland Security during the S.R. 530 (Oso) slide in March 2014, the Director commented, There is no fire; isn't this mission creep for a wildland fire agency? The Planning Section Chief replied, No sir, this isn't mission creep, but mission evolution." In reality, mission creep by wildland fire resources during a non-fire response is typically the result of action-oriented responders seeing a need outside of the scope of their assigned mission and addressing that need, much as they would during a wildland fire. This is not appropriate on a non-fire incident; actions need to stay within the lane of the assigned mission. Obstacles to Situational Awareness The lack of situational awareness has been identified as one of the primary factors in accidents or poor decisions due to human error. Working in an unfamiliar environment Module 7: Operational Environment 47

49 with agencies that don't work with IMTs often can lead to these obstacles. The most common contributors to lack of situational awareness are inexperience, lack of teamwork/information sharing, and tunnel vision. First, inexperience. Less experienced personnel may not have the mental models to be able to know which factors are the most important to monitor, and they may miss subtle cues indicating that the situation is changing. In addition, they may not be able to predict events due to lack of experience. In lack of teamwork/information sharing, often there are information requirements that are relevant to multiple team members. In a poorly functioning team, team members may fail to share relevant information, share unnecessary information, or possess different assessments. So how do you build situational awareness? Having a daily set routine and schedule will help to maintain situational awareness. This includes: Routine calls with IMTs, GACC/local dispatch centers, and others Daily staff briefings Attending FEMA's strategic and tactical meetings Looking at FEMA's Common Operating Picture Reading the Joint Incident Action Plan and Situation Report Information Sources and Programs Since ESF #4 activations may come with so many different agencies working together, early in an incident, reliable information may be available only through organizations such as the NRCC, RRCC, GACC, and Emergency Management Assistance Compact (EMAC). Wildland fire resources will utilize the systems that have been developed for wildland fire. As soon as the standardized reporting protocols and systems are in place, it is important to use those sources. When you receive information requests that cannot be answered through standardized reports, you need to think out of the box to find reliable sources. FEMA and the State also gather and produce information. The information includes all materials used to develop their COP, situation reports, and incident action plans. For FEMA, this information is filed in FEMA WebEOC by incident. Access to FEMA WebEOC can be provided by your local FEMA Module 7: Operational Environment 48

50 region. The site can be found at: Several States also use a similar version called State WebEOC or a different system. When on an incident, ask the State if you can have access to view their information. Module Summary Module Summary You have completed Module 7: Operational Environment. This module discussed fire norms compared to other mission norms, complex events, and the importance of situational awareness. You should now able to: be Identify the differences between fire norms and other mission norms. Describe the nature of non-fire incidents. Identify the differences between mission creep and mission evolution. Explain the components and obstacles of situational awareness. Module 8: Best Management Practices Welcome to Module 8: Best Management Practices. This module will define the roles of those involved in ESF #4 activations and good strategies that should be employed by each role. At the end of this module, you will be able to: Identify the role of operations and command. Identify the role of Incident Information. Identify important logistics and planning information you need to know. Identify the types of information you may encounter. Everyone Module 8: Best Management Practices 49

51 National Firefighting Mobilization System Working with ESF #4 on Stafford Act Incidents The NRF refers to the mobilization system used by wildland fire agencies as the national firefighting mobilization system. The system is being expanded to include all-hazard resources and capabilities. The resources needed to support ESF #4 are ordered at the local dispatch or GACC level. Each GACC determines which will be the lowest level of resource ordering. Interfacing with Resources ESF #4 is responsible for all resources brought in under their MAs. ESF #4 doesn't direct and command these resources but is responsible for providing oversight and support. Resources that aren't assigned to an IMT or are otherwise being supported directly by ESF #4 should maintain daily contact with ESF #4 for accountability purposes. ESF #4 needs to ensure that the resources understand the following: Ordering protocols, including processes and sidebars Procurement processes Serious accident/incident protocols Reporting requirements Information protocols, including what type of information can be conveyed and by whom Cost tracking and documentation requirements The demobilization plan Module 8: Best Management Practices 50

52 Incident Business Management Guidelines It is important that you adhere to the established incident business management guidelines. Following the established guidelines allows for: More accurate data Increased interagency collaboration Increased accountability Improved efficiency Personnel staffing ESF #4 are not expected to be overall technical experts, but they should be knowledgeable about the Interagency Incident Business Management Handbook (IIBMH) and the policies that apply to ESF #4. Chapter 90 of the IIBMH details business management practices pertaining to ESF #4 and can be found online. The IIBMH details national incident business management guidelines. Individual agencies may have supplemental information, such as the Department of Interior (DOI) All-Hazards Supplement to the IIBMH. In addition, Forest Service regions may have other supplements. Operations and Command Structure Fire Resources ESF #4 is responsible for providing wildland and structural firefighting resources when needed. While use of structure fire resources for structural protection during a wildland-urban interface (WUI) fire is common, ESF #4 may need to initiate the mobilization of structure fire resources to support local fire departments (FDs) in response to a major earthquake, a terrorist attack, or other type of urban fire. There are well over 5,000 Type 1 and Type 2 engines statused in ROSS. Most of these are Module 8: Best Management Practices 51

53 in the Western United States. Additional structure fire resources, including structural engines, aerial ladders and platforms, foam tenders, fire boats, and structural firefighters are available through agreements with fire departments across the country. (Each of these types of resources is typed in ROSS.) ESF #4 may need to access these and will need to work closely with local dispatch centers and the GACC to ensure the appropriate resources are ordered in a timely manner. ESF #4 may need to order additional staff to work directly with the dispatch/coordination center to ensure that resources ordered are placed in ROSS for tracking during the incident. Many structure firefighting agencies provide additional functions such as emergency medical services, technical rescue, and hazardous materials response. Structure firefighting resources ordered under ESF #4 should be for the primary mission of firefighting and providing fire protection; any other functions provided should be considered ancillary or in support of the firefighting mission. If structure firefighting resources are requested specifically to provide other functional capabilities (e.g., hazardous materials response, technical rescue, or emergency medical transportation), the request should be made to the appropriate ESF; that ESF can subtask ESF #4, if appropriate, for the resources. If structure fire resources mobilized through ESF #4 are not expected to be tied in with an IMT, a liaison should be assigned to the resources to ensure that the resources meet the requirements and limitations of the FEMA assignment. This liaison would also be the communications link between the IMT and Fire Unit Leader. The ESF #4 Liaison would report administratively to the Fire Unit Leader at the RRCC/JFO but would be embedded with the structure fire resources. If there is a significant structure fire response (such as to an urban fire emergency), consideration should be given to ordering one or more technical specialists, such as experienced officers from a major metropolitan fire department, to work directly with ESF #4 and any IMTs supervising structure fire resources. Interaction with All-Hazards IMTs Many different entities have developed IMTs based on ICS core competencies under the National Incident Management System. Most of these are at the Type 3 level. Federal agencies with IMTs include the U.S. Coast Guard, the Environmental Protection Agency, USDA's Animal and Plant Health Inspection Module 8: Best Management Practices 52

54 Service (APHIS), DOI's National Park Service and U.S. Fish and Wildlife Service, and others. Many States and metropolitan areas have developed All-Hazard Incident Management Teams (AHIMTs). AHIMTs consist of personnel from various disciplines (fire, rescue, emergency medical, hazardous materials, law enforcement, public works, public health, and others) trained to perform the functions of the Command and General Staff at the Type 3 level. AHIMTs are often sponsored or administered by a State or local emergency management agency. AHIMTs may be the initial incident management structure at significant wildland fires and other emergencies, and may transition to a Type 1 or Type 2 IMT. In some cases, non-fire IMTs especially AHIMTs may be the most appropriate resource for an ESF #4 assignment as the members are typically from various agencies within the State and the local level. Some AHIMTs have worked side by side with wildland fire IMTs at major disasters such as Hurricane Sandy. AHIMTs may respond through EMAC, at the direct request of the affected State, and can be ordered through the national firefighting mobilization system. For national mobilizations (through EMAC or the National Firefighting Mobilization System), an AHIMT is initially composed of 14 members. The 14 members composing the AHIMT are: Incident Commander Operations Section Chief Planning Section Chief Logistics Section Chief Finance/Administration Section Chief Safety Officer Public Information Officer Liaison Officer Resources Unit Leader Situation Unit Leader Communications Unit Leader Staging Area Manager Assistant Public Information Officer Deputy Operations Section Chief The 14 AHIMT members, and any other AHIMT members subsequently ordered to support the original order, shall be from an organized, government-sponsored AHIMT and shall meet recognized (FEMA) qualifications for the positions they are filling. An order for an AHIMT is for the personnel only and does not include any communications or office equipment or supplies (this should be supplied by the IMT or government entity the AHIMT is supporting). If the AHIMT arrives and determines that they need additional or specialized personnel, equipment, or supplies, they can order those through the appropriate process. Module 8: Best Management Practices 53

55 AHIMTs are considered State or local resources. It is not the intent that an AHIMT would be ordered through ROSS for initial response where the team would be first to arrive; rather, ROSS would be used to order an AHIMT for a mission to either: 1. Support a wildland fire IMT or agency in response to one or more wildland fires, or 2. Support an IMT or other Federal, State, or local government entity with a defined mission (such as managing a logistics facility) during a disaster response after the State and FEMA have arrived and have determined what the needs are. Area Command and ESF #4 Coordination A USFS Region may request an Area Command Team to assist in coordinating several IMTs operating under one or more mission assignment(s). Because the IMTs are working for ESF #4, the Area Command Team would be working in conjunction with ESF #4 to oversee the IMTs. For example, if Area Command determines that additional resources are needed for one or more of the IMTs, Area Command would coordinate with ESF #4 to make sure the cost can be covered under an existing MA or determine whether a modification is needed. Only ESF #4 can negotiate, accept, and modify a mission assignment. ESF #4 has specific needs from each IMT; if Area Command has been established, ESF #4 and Area Command need to establish ground rules related to interfacing with the IMTs. In other words, everyone Area Command, the IMTs, and ESF #4 needs to know their roles and responsibilities (who does what?) with the requirements that are unique to FEMA assignments. The ESF #4 Coordinator may play a big part in determining the ground rules. Some examples of questions to consider when establishing the ground rules are: How will ESF #4 monitor or verify the actions that are being taken under the MA to determine whether the IMT is operating within the scope? Daily briefings with the IMT or through Area Command? If through Area Command, who is the designated point of contact for this information? How will ESF #4 get the information they need from the IMTs, such as daily costs, making sure ordering is in line with the MA (e.g., purchases), situation updates to feed reporting requirements? Directly from the IMT or through Area Command? If through Area Command, who is the designated point of contact for the information? Module 8: Best Management Practices 54

56 Who has what role during in-briefs and closeouts? FEMA may issue an MA through ESF #4 for an Area Command Team to perform a specific function during an incident, not related to other ESF #4 missions. There is a PSMA for this type of command and control mission. In this case, the Area Command Team would essentially work for ESF #4 (as all resources do) while completing their mission under the MA. Finance Federal Financial Policies There are three Federal Financial Policies you should be aware of: payments, time and pay, and travel. For payments, prior to finalizing any incident payments, including those made by purchase cards or convenience checks, the IMT Finance Section Chief needs to work with the Regional Incident Business (IB) Coordinator or assigned Incident Business Advisor (IBA) to establish a process and requirements for payment packages. Travel is compensable under a declared emergency because it results from an event that could not be scheduled or controlled administratively by agency management. For time and pay, after the first day on an incident, individuals are spot changed to a first 8-, 9-, or 10-hour daily tour of duty depending upon their weekly tour of duty. Every day is considered a workday during an incident assignment until the assignment is over or the individual is officially released from the incident. All individuals are ensured pay for base hours of work, travel, or standby at the appropriate rate of pay for each workday. This is true for part-time and intermittent individuals as well. When personnel are required to take a mandatory day off that falls on their normal day off, there will be no pay compensation. Overtime for non-fire incidents is treated differently than for fire incidents. The law is specific to fires when an individual is entitled to full overtime, and only applies to Forest Service and DOI employees. For non-fire all-hazard incidents, overtime is capped at the GS-10 Step 1 rate or the employee's base rate, whichever is higher. There is also a biweekly cap on an employee's total Module 8: Best Management Practices 55

57 pay; the Chief can request a waiver from the biweekly pay cap for Forest Service employees. A similar waiver request is made through DOI leadership for DOI employees. For additional information on time and pay, refer to Chapter 10 of the Interagency Incident Business Management Handbook (IIBMH), available online. Tracking and Monitoring MAs ESF #4 tracks and monitors all mission assignments in order to: Ensure resources assigned under an MA are performing their tasks within the scope of the work negotiated and projected end date. Know what specific resources are assigned to which specific MA. Ensure daily estimated costs to date and projected costs (often referred to as the burn rate ) do not exceed the total cost estimate identified on the MA. On an incident there may be several different MAs for the same type of activity. Resources could start on a Surge MA, then switch to an emergency declaration MA that could switch over to a major disaster declaration. There will be start and end dates for each. Each MA will have a different FireCode and time must be charged appropriately. IMTs are expected to track and monitor the MAs related to their assigned mission. e-isuite The e-isuite application consists of these units: resource, cost, time, incident action plan, and supply. These units are integrated, which means they have a similar user interface and share a common database. Data need to be entered only once to be available to all of the different areas. The information generated from e-isuite reports can be Module 8: Best Management Practices 56

58 useful to ESF #4. The information can be used to: Working with ESF #4 on Stafford Act Incidents Track costs for each MA. Provide oversight review the information to ensure that costs associated with a specific MA are accurately reflected. Respond to information requests. For additional information, see the e-isuite website: Accountable Property FEMA defines accountable property differently than wildland fire agencies. Be sure to work with FEMA to understand how they define accountable property. The Regional Incident Business Coordinator/IBA should be a part of this discussion with FEMA. If accountable property is needed to complete tasks under an MA, IMTs need to work through ESF #4 to see if FEMA can procure the property. If not, all accountable property purchases must be coordinated with FEMA. Prior approval from the appropriate FEMA official may be necessary to ensure reimbursement. All accountable property must be returned to FEMA upon completion of the mission. ESF #4 must ensure that this information is shared with the IMTs and those involved with purchasing. Remember that large purchases appropriated within an MA should be pre-approved, documented, and, ideally, signed for by a FEMA Comptroller or other appropriate FEMA official. Supporting Documentation When a bill is submitted to FEMA, supporting documentation needs to be available for the following: Personnel costs, including whether the costs were for regular or overtime pay Travel, per Diem, and transportation. This includes when the travel was conducted and how much it cost Contract services, detailing who was awarded the contract, how much it cost, and the period of performance Module 8: Best Management Practices 57

59 Purchases, with description, receipts, and appropriate documentation to clarify what was purchased Leased property or equipment, with information on the item, description, amount, and period of lease It is important for ESF #4 and IMTs to maintain and archive proper documentation so that it can be produced upon request for purposes such as audits or supporting billing needs. Large purchases, as appropriate within the MA, should be documented on a task order and signed by a FEMA Comptroller or other appropriate FEMA official. The official's name should also be printed in case the signature is not legible. Logistics Dispatch/Coordination Center All firefighting resources assigned under an MA will be mobilized through the national firefighting mobilization system. The Regional ESF #4 Coordinator should have established with the GACC Coordinator what the protocols will be for mobilization, tracking, and demobilization of resources. This may be managed at the GACC level or a local dispatch center closer to the incident. If there are no protocols in place, then it is ESF #4's responsibility to ensure protocols are in place with the GACC Coordinator. Remember that resources can be mobilized upon request from FEMA but before an MA is complete. The dispatch entity will need copies of all completed MAs that involve the mobilization of resources. ESF #4 will typically facilitate the ordering of resources through the national firefighting mobilization system as identified in the National Mobilization Guide after an MA or TO are agreed to with FEMA. ESF #4 needs to coordinate closely with the assigned resources, IMT, and the dispatch entity throughout the incident to ensure that: A point of contact and communication process is established. An incident number and financial code (Fcode) are established for each MA. Resources are utilizing the correct incident number and F-code for the specific MA. Module 8: Best Management Practices 58

60 If the IMT identifies a gap in these processes, the IMT needs to work with ESF #4 to ensure measures are taken to establish appropriate protocols. Ordering Protocol IMTs should work with ESF #4 in order to understand the established ordering protocols. This should include: What can be ordered directly at the incident level and who has the authority to order What needs to be reviewed or approved by ESF #4 How purchases will be handled The intent of ESF #4 is not to create an untimely delay in getting what is needed. Rather, ESF #4 needs to ensure that they are the appropriate entity to fill the need and that what is being ordered supports the scope of the MA that was negotiated with FEMA. This oversight is important so that the primary agency does not incur costs that have not been negotiated and is not incurring costs another entity should provide and that items ordered are only for the duration of the MA. For example, FEMA (rather than the IMT) should procure space that will be used by an IMT if the space may continue to be used by other incident entities after the IMT leaves. If the space had been procured by the IMT, then the MA cannot be closed because the person procuring the space (the card holder) has the financial responsibility until there is no longer a need. Mobilization Centers for Incoming Resources Module 8: Best Management Practices 59

61 Some MAs may require the mobilization of a large number of firefighting resources. The situation may warrant the use of a mobilization center for the initial check-in, in-briefing, and employment of incoming resources. FEMA may have pre-designated mobilization centers. If these cannot accommodate ESF #4 needs, then the decision to utilize a mobilization center may be made by the Forest Service region/area in consultation with ESF #4, local dispatch, and the GACC. All of these entities have a stake in the process, as well as potential workload issues. Most geographic areas have pre-designated mobilization centers with designated resources (and/or contracts) for the management of the center; however, in some cases a mobilization center may need to be established from scratch due to the location of the incident(s), weather conditions, effect of the incident on the predesignated site, etc. Once the need for a mobilization center is identified, the ESF #4 Primary Leader should work with FEMA to see if they will approve an MA for the costs associated with establishment and use of a mobilization center. (This discussion could take place when FEMA makes the request for firefighting resources.) In the past, there has been no reluctance on FEMA's part to fund a mobilization center. During Hurricane Sandy, a pre-established mobilization center in Harrisburg, PA, was used for incoming firefighting resources that were mobilized for emergency road-clearing assignments; over 700 firefighters were processed in and out of the mobilization center while en route to or returning from New York and New Jersey. Information Incident Information How information is handled on a non-fire all-hazard incident is different from a wildland fire. There are two different types of information being conveyed on a non-fire incident that you will encounter: Incident information, which FEMA owns Module 8: Best Management Practices 60

62 ESF #4 information (what ESF #4 and their resources are doing) Unlike wildfires, where responsibility for incident information is delegated to IMTs, incident information specifically related to an all-hazard incident is managed (owned) by FEMA. FEMA, along with its State counterpart, will control and release information related to the incident. IMTs can describe what they are operationally doing. That includes the mission and activities under their MAs and the resources they have. It is important that IMTs convey only information that is specific to their MAs. This is often referred to as staying in your lane. For example, ESF #4 may have an IMT providing command on-site at a landslide. Through the daily call with the IC, it is known that the temporary berm has been completed. At the JFO Command and General Staff meeting, it is the responsibility of ESF #3 (which had the MA to complete the berm) to report on that accomplishment, and it is up to FEMA whether the information gets reported to the media. Coordinating with ESF #15 Remember that IMTs do not have a direct role in providing public information during an emergency or major disaster. This is true of ESF #4 staff and of resources provided through ESF #4. FEMA (through ESF #15) has the responsibility for external affairs and public information and warning during declared emergencies and major disasters. IMTs should coordinate with ESF #4 to work with ESF #15 to understand the protocols for sharing and releasing information. If an IMT is assigned, it is important to find out who will be the information (ESF #15) liaison to the IMT. If there is a Joint Intelligence Committee (JIC), protocols for how the IMT interfaces with the JIC need to be established. The Public Information Officer for an IMT may have limited duties during a mission assignment. An IMT or other resources may be asked to speak at local meetings, be interviewed, speak with the public, staff an information center, etc. They need to: Know who the ESF #15 liaison is. Work with the ESF #15 liaison to understand what information has been cleared and what can be conveyed. Ensure the ESF #15 liaison knows when the IMT are conducting interviews or speaking at meetings. Module 8: Best Management Practices 61

63 Have the FEMA, State, and/or local jurisdiction there to answer questions specific to them when conducting interviews or speaking at meetings. Speak in the context of supporting and assisting FEMA and the local jurisdictions. Convey only facts that are known and have been cleared by FEMA Handling Information Requests Providing information is one of the most pervasive aspects of ESF #4 activities during an activation especially at the NRCC. The world seems to run on information, and failure to provide requested information in a timely manner can seem to be as problematic as not providing emergency resources in a timely manner. As a member of an IMT, you may be expected to funnel information to ESF #4. Either ESF #4 may reach out requesting specific information, or you can proactive providing updates. Ultimately, ESF #4 needs to convey information that factual and has been cleared at the appropriate level. Types of additional information requests could include: be is Internal specific agency policies; e.g., can local Forest Service personnel get paid for assisting their community during a disaster? External ESF #4 resource support; e.g., the numbers and types of resources provided through ESF #4 by agency. Planning Establishing a Documentation Process In addition to daily reports and an incident narrative, ESF #4 is required to provide closeout documentation and reports. It is important to determine: What is needed from IMTs and field resources? What does the region/area need (claims, injuries, e-isuite database)? What should be included in the ESF #4 Documentation Box (unit logs, electronic files)? What closeout reports from ESF #4 will be required by the region and by FEMA and in what format (hard copy or electronic)? Module 8: Best Management Practices 62

64 If a non-agency or file account has been established, ESF #4 needs to remove all the information from those sites before they leave. These sites do not meet agency security requirements. As part of ESF #4's closeout package, the usernames and passwords should be provided so the region/area can continue to monitor activities and close out the accounts. During the in-briefing, ESF #4 will have discussed regional/area requirements for documentation. ESF #4 needs to provide the primary agency with documentation of the missions that were undertaken, time lines and commitments of resources, chronology of activities, and key decisions that were made. The in-briefing for an IMT will state the requirements for documentation. ESF #4 needs to ensure that any documentation generated by an IMT needed by the primary agency is provided to the primary agency. This includes supporting documentation of actions taken under the MA and what the primary agency is responsible for. This may be given directly to the primary agency and may not be part of ESF #4's documentation. The intent is to provide the region/area with information that they may need after the incident is over. This information is also used to resolve disputed costs, process claims and dealings with the Office of Workers' Compensation Programs, and document actions for potential litigation. Module Summary Module Summary You have completed Module 8: Best Management Practices. This module discussed best practices that should be used before, during, and after deployments. You should now be able to: Identify the role of operations and command. Identify the role of Incident Information. Identify important logistics and planning information you need to know. Identify the types of information you may encounter. Module 8: Best Management Practices 63

65 Module 9: Wildfire and Aviation Mobilizations through FEMA Welcome to Module 9: Wildfire and Aviation Mobilizations through FEMA. This module will discuss how ESF #4 is affected by wildland fires and how this impacts IMTs under an ESF #4 activation. At the end of this module, you will be able to: Identify ESF #4 considerations when activated for a wildland fire. Identify the relationship between the ESF #4 liaison group and the GACC. Identify the ESF #4 Fire Resource Ordering Process. Identify the aviation roles that ESF #4 may have during an emergency or major disaster. Identify the All-Hazard Aviation Operations. Wildfire and Aviation Mobilizations through FEMA Ordering Resources During Wildland Fires When a State requests Federal firefighting support/resources for a wildland fire covered under an emergency or major disaster declaration, it is recommended that the standard wildland fire resource ordering process be used in conjunction with Fire Management Assistance Grants (FMAGs) whenever possible. This process can facilitate more efficient, effective ordering and response than might be received through the issuance of a mission assignment. Special procedures for ordering/tracking resources mobilized through the MA process must be followed during wildland fires. Keep in mind that firefighting operations are almost always well underway by the time an emergency is declared, with large fires on State or private land already declared as FMAG fires. FEMA Headquarters agrees with this approach and typically recommends to the FEMA regions that firefighting operations remain under FMAGs while other Federal response efforts (for mass care, debris removal, etc.) can be funded under MAs. The choice of whether to use the FMAG process or the MA process lies with the affected State, in conjunction with the FEMA region. Module 9: Wildfire and Aviation Mobilizations through FEMA 64

66 Resources ordered under an MA cannot be used for firefighting on Federal lands. If an MA is issued for firefighting resources, clarification as to where the resources can and cannot be used must be included in the MA. An ESF #4 Pre-Scripted Mission Assignment for firefighting support can be issued for firefighting resources or can be used in the formulation of other, more specific MAs if necessary. Staffing ESF #4 During Activations for Wildland Fires During a wildfire emergency declaration, ESF #4 may be staffing The RRCC, JFO, and NRCC. In addition to this extra staff, ESF #4 staff may need to be deployed to the State Emergency Operations Center (EOC) and the Geographic Area Coordinating Center. IMTs operating in the area covered by a presidential declaration will be notified if ESF #4 is involved, and how that may affect their incident. In addition, the Regional/Area ESF #4 Coordinator provides coordination/liaison between regional Forest Service leadership and coordinates with Bureau or Regional Coordinators from support agencies and land management leadership (line officers) as appropriate. Resource Requests During Wildland Fires Under the Stafford Act Resource Request Forms may need to be generated at the Geographic Area Coordination Center(s) for orders placed for wildland fires under the Stafford Act. Here is the process that would be used for these incidents: ESF #4 at GACC assists in generating a Resource Request Form (RRF). RRFs identify bundled suppression personnel and equipment that were ordered under a FEMA order and request number in the Resource Ordering and Status System. Bundled RRFs are then transmitted from the GACC to the ESF #4 at the State Emergency Operations Center (SEOC) or JFO. ESF #4 at the SEOC or JFO estimates the cost of the bundled RRFs to ensure consistency in costs associated with firefighting equipment and personnel. Module 9: Wildfire and Aviation Mobilizations through FEMA 65

67 ESF #4 then evaluates whether the total cost of the RRF is covered under funds already provided by FEMA through an MA to the FS: If no, ESF #4 will generate an RRF to request additional funds from FEMA through an amendment to an existing MA or request a new MA. If yes, ESF #4 will generate a Task Order under the existing MA that identifies the total cost requested for that resource. The ESF#4 must ensure that costs are tracked and kept within the financial allocation in the MA will not be overspent. ESF#4 files and forwards copies completed MAs and TOs to the assigned IBA. The ESF#4 that performs these duties may vary depending on the ESF#4 staffing levels, qualifications, and complexity of the incident(s). The duties are typically performed at the lowest level then reviewed by the next tier. Duties are shared depending on workload and will be worked out by the ESF#4s. In effect, an MA provided to ESF #4 by FEMA can be compared to funds deposited in a bank account. ESF #4 is responsible for upkeep of the associated account checkbook e.g., so that the total cost of the resources ordered does not exceed the funds committed by FEMA in an MA. Resource Requests During Wildland Fires Under the Stafford Act Example 1 ESF#4 at Northern GACC transmits RRF to ESF #4 at SEOC for firefighting resources and equipment in support of State/local mission totaling $5 million. Process: ESF #4 at SEOC receives and reviews RRF, validates total cost estimate, and checks to see if there are sufficient funds under the existing MA. If ESF #4 review determines that there are sufficient funds under the existing MA to cover the GACC RRF financial needs, then ESF #4 at SEOC completes a Task Order that summarizes the GACC firefighting resources and equipment and total costs. This Task Order does not obligate additional funds but details expenditures of existing FEMA obligations under the existing MA. This Task Order is filed and forwarded for use by Forest Service Incident Business Advisor. ESF #4 at SEOC will send a notification to the GACC when the RRF has been processed and transmitted to FEMA. Module 9: Wildfire and Aviation Mobilizations through FEMA 66

68 Resource Requests During Wildland Fires Under the Stafford Act Example 2 ESF#4 at Southern GACC transmits RRF to ESF #4 at SEOC for firefighting resources and equipment in support of State/local mission totaling $15 million. Process: ESF #4 at SEOC receives and reviews RRF, validates total cost estimate, and checks to see if there are sufficient funds under the existing MA. If ESF #4 review determines there are insufficient funds under the existing MA to cover the GACC RRF financial needs, then ESF #4 at SEOC generates a second RRF to FEMA requesting an amendment to the existing MA for more funds to cover the GACC RRF. This amended MA is filed and forwarded for use by Forest Service Incident Business Advisor. ESF #4 at SEOC will send a notification to the GACC when the RRF has been processed and transmitted to FEMA. Aviation: Primary Agency vs. Support Roles ESF #4 does not have a primary agency role to provide aviation support (except for firefighting); however, aviation can be a significant part of the response to some emergencies and major disasters and ESF #4 may be asked to play a major support role in aviation operations. Because of the experience of the wildland fire agencies managing aviation during emergencies, ESF #4 may be asked to perform a variety of aviation activities during emergency operations. For example, during the Colorado floods (September 2013), aviation activities conducted through ESF #4 included providing airspace separation utilizing tactical platforms and supporting search and rescue efforts through aerial recon of locating stranded civilians, identifying suitable landing zones, transporting individuals to/from landing zones, ramp management (debarkation of evacuees), and delivering supplies to stranded civilians and search and rescue teams. Examples of overhead resources that ESF #4 may be able to provide in support of aviation operations include: an Air Operations Branch Director to assist the IMAT in planning and coordinating aviation activities and an Air Space Coordinator to work with the FEMA Aviation Branch, FAA, GACC, and IMTs on temporary flight restriction needs and Notices to Airmen. IMTs may have specific aviation needs tied to their MA. For example, the IMT may need to use an aerial platform for gathering intelligence, recon, etc. Module 9: Wildfire and Aviation Mobilizations through FEMA 67

69 All-Hazard Aviation Operations Memo Working with ESF #4 on Stafford Act Incidents The All-Hazard Aviation Operation Memo, dated November 29, 2013, clarifies national aviation policies and provides direction on Forest Service (FS) aviation operations for all-hazard incident response. This includes personnel and aircraft involved with emergency activities during local allhazard response as well as operating under ESF #4. Key points of the memo include: For the Forest Service to participate in all-hazard aviation operations, including but not limited to emergency situations such as search and rescue and medical transport, the approval of a Line Officer for use of aircraft and pilots is required. In all situations, including all-hazard operations, FS employees flying on unapproved aircraft operated by unapproved pilots also requires Line Officer approval. All deviations from FS policy shall be documented and submitted via a SAFECOM report to the employee's supervisor and the appropriate forest aviation office. For operations under ESF #4, Forest Service aircraft may be mission assigned by FEMA. Mission assignments will come to ESF #4 at the National Response Coordination Center, Regional Response Coordination Center, or Joint Field Office. ESF #4 will then place the appropriate resource orders through the standard ordering process. The FS maintains operational control when directing or managing a specific operation or mission tasked through ESF #4. FS personnel may provide aviation support for non-fs aircraft provided they are trained and qualified to perform the task/job and formally tasked to do so through ESF #4. Requests for deviations from any FS policy, including applicable FS and/or interagency guides regarding non-life-threatening situations, shall be forwarded to the Deputy Chief, State and Private Forestry, for approval prior to accepting the mission. Direction provided in the memo can be found in the appropriate sections of the Forest Service Manual. Module Summary Module Summary You have completed Module 9: Wildfire and Aviation Mobilizations through FEMA. This module discussed events that may not be common, but are high impact if they occur. You should now be able to: Module 9: Wildfire and Aviation Mobilizations through FEMA 68