INSTITUTE FOR A SUSTAINABLE ENVIRONMENT Private Contracting on National Forest Lands: Preseason Contracting and Fire Response HEIDI HUBER-STEARNS, R. PATRICK BIXLER, AND CASSANDRA MOSELEY Ecosystem Workforce Program W O R K I N G P A P E R N U M B E R 6 1 S U M M E R 2 0 1 5 About the authors Heidi Huber-Stearns is a post doctoral scholar at the Ecosystem Workforce Program, Institute for a Sustainable Environment, University of Oregon. R. Patrick Bixler was a faculty research associate at the Ecosystem Workforce Program, Institute for a Sustainable Environment, University of Oregon. Cassandra Moseley is the director of the Ecosystem Workforce Program, Institute for a Sustainable Environment, University of Oregon. Acknowledgements This study was made possible by funding from the Joint Fire Sciences Program. We thank the fire professionals, private contractors, and colleagues who provided numerous reviews of this document for accuracy of information. Photos courtesy of the U.S. Forest Service Coconino National Forest (cover, page 1, 11, 12, 13, 18, back cover), Emily Jane Davis (page 3), U.S. Bureau of Land Management, Oregon (page 5, 15), and U.S. Forest Service Fremont-Winema National Forest (page 10). Edits were provided by Jesse Abrams and Autumn Ellison, Ecosystem Workforce Program, Institute for a Sustainable Environment, University of Oregon. Design and layout was provided by Autumn Ellison, Ecosystem Workforce Program, Institute for a Sustainable Environment, University of Oregon. Note: This document is based on interviews with fire professionals and document analysis and reports what our research (and vetting with fire professionals) has found to be the generally accepted process for pre-fire contracting and fire response as of 2015. Depending on the specific context, the order of actions, contracts used and entities involved may vary. Contact information Ecosystem Workforce Program Institute for a Sustainable Environment 5247 University of Oregon Eugene OR 97403-5247 541-346-4545 ewp@uoregon.edu ewp.uoregon.edu An equal-opportunity, affirmative-action institution committed to cultural diversity and compliance with the Americans with Disabilities Act. This publication will be made available in accessible formats upon request. ©2012 University of Oregon DES1012-044bf-C51016 The U.S. Forest Service is facing unprecedent-ed challenges in wildfire suppression, and increasingly depends on private wildfire suppression to bolster capacity for direct attack re- sources, such as aerial resources, firefighter hand crews and other equipment. The processes and pro- cedures employed for contracting such resources are complex and can be difficult to follow and un- derstand. The purpose of this paper is to provide a clear and step-wise presentation of the private con- tracting system for wildfire suppression on federal lands, highlighting the key actors, actions, policies and procedures used throughout. National forest fire suppression & private suppression contractors Wildfire in the western United States is increas- ingly unpredictable in terms of human and eco- logical damage, as well as budgets and response capacity. Fire suppression, or the act of controlling a fire with the intent to put it out, is used on federal lands in situations where it has been determined that fire needs to be suppressed, typically in or- der to protect life and property. The Forest Service is responsible for approximately 70% of national wildfire suppression costs.1 Since 2000, federal fire- fighting costs have hovered around $1.5 billion on average annually, a dramatic increase from average spending prior to 2000.2 In 2015 (as of 11/17/15), 9.79 million acres have burned in the US.3 This is well above the 10-year average of 6.4 million acres, and only comparable in the past decade to the 2006 fire season, in which over 9.5 million acres burned. In response, in the 2015 fire season, the Forest Service has spent more than 50% of its entire annual agen- cy budget on fire for the first time, with a projected growth to 67% of the agency budget by 2025.4 The Forest Service does not manage these fires alone: federal capacity to manage fires depends on local cooperators (state and local fire agencies) as well as private contractors that are available to assist when needed. As suppression costs continue to rise, the role of private contractors has become increasingly prominent in providing direct wildfire suppression support to both state and federal agencies in the form of equipment, aerial resources, hand crews, and support services. The unpredictability and seasonality of fires means that private businesses in this field face uncertain conditions for building, competing, and maintain- ing their business over time. As the largest purchas- er of wildfire suppression services and resources, the Forest Service drives private contracting mar- kets, and many private contractors have built their businesses around meeting the agency’s fire sup- pression needs. One key area where contractors operate, and the focus of this document, is con- tracting on national forest lands managed by the Forest Service. The Forest Service’s contracting processes, tech- nical requirements for equipment and crews, and protocols for dispatching resources all shape what the private contractor market looks like. Under- standing how private contracting operates within the Forest Service’s pre-fire contracting and fire re- sponse structures is important in order to under- stand when, where, and how private contracting can be engaged on wildfire suppression, both for those working in this arena, as well as for others seeking to better understand the place and process of private contracting on federal lands. 2 Private Contracting on National Forest Lands: Preseason Contracting and Fire Response Approach The information presented in this working paper reports what our research (via policy and docu- ment review and interviews) and vetting with fire professionals has found to be the generally accepted process for pre-fire contracting and fire response as of 2015. Much of the information de- scribed in this document can be found in the re- sources listed below (and other resources listed at the end of document): • 2015 National Dispatch Standard Operating Guide for Contracted Resources5 • National Interagency Mobilization Guide6 • Wildland Fire Incident Management Field Guide 20157 • Online Virtual Incident Procurement system8 Depending on the specific region and/or context, the order of actions, contracts used and entities in- volved may vary from what is presented here. Re- sources for additional and region-specific informa- tion are found throughout the following sections, and in a complete list at the end of this document. In this paper we focus only on wildfire suppres- sion on federal lands and not on related issues such as prescribed burning or allowing natural fires to continue burning for forest health purpos- es. It is also important to note that we focus on the processes and components of private contracting during preseason and once a fire ignites. We do not reflect upon the nuances or effectiveness of these processes, describe challenges encountered on both the agency and private contractor sides, or suggest revisions to the current structure. Some of this will be explored in our ongoing research, but is not the intended focus for this document. How to use this document Private contracting on federal lands is a com- plex process, involving different scales of agen- cies, various systems, processes and numerous acronyms. The following sections lay out in text and figures how the private contracting process works, including: definitions, applying to be a contractor prior to fire season, processes when a fire is underway, including when fires growsin complexity, and demobilization. This document is designed for those working in the private contracting field, as well as others who want to learn about the process. The fol- lowing information provides the reader with some tips for navigating this document: • Definitions of key actors are provided in the first section, and definitions for key termi- nology introduced in each section are pro- vided in side boxes. • Acronyms are provided in a list in Appen- dix A (see page 18). • Figures follow a consistent format, includ- ing: • Private contractors are in brown broxes • Contracting offices and officers are in green boxes • Incident Management Team actors are in orange boxes • A short animated video of this information can be found online at: https://www.you- tube.com/watch?v=s68jiMYx0W4 • All terminology referenced includes end- notes, which can be used for finding key contracting documents. The diagram below outlines the progression of this document; each new section begins with this diagram repeated, and the appropriate part of the progression highlighted. Definitions Preseason contracting system Fire response order Fire response: Involving private contractors Fire response: Fire growth/ complexity Postfire resource demobilization Private Contracting on National Forest Lands: Preseason Contracting and Fire Response 3 4 Private Contracting on National Forest Lands: Preseason Contracting and Fire Response Private contractors Private contractors (or vendors) are for-profit busi- nesses that hold one or more contracts with the Forest Service for fire suppression activities and equipment. We group these contractors into four commonly used categories, including: Aviation vendors include resources like airtank- ers, air buses, helicopters, fire retardant, and pilots. Hand crews supplied by private contractors must be Type 2 – either Type 2 Initial Attack (IA) or Type 2 qualified wildland firefighter crews. Both crew types must be trained and meet qualifications of the Wildland Fire Incident Management Field Guide.9 Crews consist of 20 people per crew, with supervi- sion by a Crew Boss and three Firefighter Squad Bosses (all meeting specified training and experi- ence requirements). In addition to the minimum standards for Type 2 crews, Type 2IA crews can be broken into squads, have three qualified saw- yers (saw operators), and have higher levels of ex- perienced crew members (require at least 60% of the crew with one season or more of experience as compared to 40% requirement for Type 2). For a de- tailed description of crew standards see Interagen- cy Standards for Fire and Aviation Operations.10 Equipment vendors provide non-aviation fire- fighting and support resource items, including ma- chinery (bulldozers, excavators, feller bunchers), vehicles (engines, water tenders), crew support (mo- bile laundry, handwashing stations, sleeper units) and support units (e.g., communications trailers, clerical support trailers). Equipment specifications are found at Forest Service’s Incident Procurement Acquisition Management page.11 Local service vendors offer resources that are used to provide a service (e.g., portable toilets, me- chanics, chainsaw repair services, vehicle rent- als).12 Such services are often contracted locally, from businesses close to the wildfire. Contracting offices and officers Contracting offices and officers are preseason actors tasked with coordinating contracts, including set- ting specifications, solicitations, issuing contracts and creating priority lists of dispatch, mainly be- fore a fire season begins (preseason). This includes: The National Contracting Office is the US Forest Service Incident Support Branch for Acquisition Management,13 which provides centralized acqui- sition support for “national contract” Fire Incident resources. The unit is a detached Washington Of- fice Unit located at the National Interagency Fire Center14 in Boise, Idaho. The National Contracting Office is responsible for national contracts for re- sources that are typically used nationally, in high demand but with limited availability, and often have unique reporting requirements. The office con- tracts both for wildland fire suppression “National Shared Resources” and for other emergency inci- dent response activities.5 The unit is responsible for issuing solicitations and national contracts for: air tankers, crew carrier buses, firefighter crews, fire retardant, helicopters, mobile food services and mobile shower facilities. The National Interagency Fire Center (NIFC) is the wildland firefighting support center for the nation. Operating costs and responsibilities for NIFC are shared by the following cooperating agencies: Bu- reau of Land Management, Forest Service, Bureau of Indian Affairs, National Park Service, US Fish and Wildlife Service, National Association of State Foresters, and the National Weather Service.14 Regional Contracting Offices15 are organized by Forest Service Regions (Regions 1-10). These offices contain acquisition management regional contract- ing officers State of Oregon Department of Forestry34 awards and manages Type 2 firefighting private hand crews through the Interagency Firefighting Crew Agreement for wildland fires within Oregon and Washington, and for use with interagency agreements.34 1. Wildfire suppression definitions: Key actors Definitions Preseason contracting system Fire response order Fire response: Involving private contractors Fire response: Fire growth/ complexity Postfire resource demobilization Private Contracting on National Forest Lands: Preseason Contracting and Fire Response 5 Dispatch and coordination centers Dispatch and Coordination Centers are organized by Forest Service Regions (Regions 1-10) and are the agency actors that request and dispatch resources as requested by fire incident commanders, once a fire begins. These include: The National Interagency Coordination Center (NICC)16 is the central point for coordinating wild- land fire resource mobilization nationally, and in- telligence and predictive services (for wildland fire and incident management decision making). NICC is the only dispatch center for: “heavy airtankers, lead planes, smokejumpers, hotshot crews, Type 1 Incident Management Teams, area command teams, medium and heavy helicopters, infrared aircraft, military resources, telecom equipment for fires, Remote Automated Weather Stations (RAWS), and large transport aircraft.”17 NICC’s dispatching sys- tem is comprised of three levels: national (NICC), Geographic Area, and local. Geographic Area Coordination Centers (GACCs)18 provide logistical coordination and resource mo- bilization for both Federal and State wildland fire agencies in their geographical area, and in other areas when needed.18 There are ten regional coor- dination centers divided into Geographic Areas for incident management and resource mobilization, including: Eastern, Southern, Southwest, Rocky Mountain, Northern Rockies, Great Basin, North- west, Northern California, Southern California, and Alaska.19 Local Dispatch includes all the dispatch offices located within each GACC region. These dispatch contacts are the first contacted when a fire begins. Incident command system The incident command system (ICS) is a national system that is used to manage incidents such as wildfires, hurricanes, and rescues.20 As an incident grows or shrinks, the staff involved will change. Often the system includes staff from a variety of different emergency service agencies. ICS focuses on effective operation, which includes components such as common terminology, integrated communi- cations, pre-designated incident facilities, unified command structure, and comprehensive resource management.20 ICS performs functions around: command, operations, planning, logistics, and fi- nance. The Incident Commander is in charge of the inci- dent overall, coordinates people and activities, and is responsible for decisions about what resources to order and when, and how to demobilize resources. Incident Management Teams (IMTs) are primarily focused on wildfire incident management, and are called when a fire becomes too complex for local fire managers to address. Incident Management Teams are ranked by “type,” which is related to what level of incident complexity they can address (e.g., local, state, or national level; Type 1 and 2 are both state and national leve` l). Such Incident Com- mand teams and systems were enacted in order to more effectively coordinate interagency wildfire decisionmaking, action, and resource allocation. 6 Private Contracting on National Forest Lands: Preseason Contracting and Fire Response 26% There are a number of guiding principles and pro- cedures established for the Forest Service in engag- ing private contractors prior to an active fire season. This includes preseason solicitations, agreements, and contracts that agencies coordinate with private contractors prior to the fire season in order to have verified and prioritized lists of contractors that meet agency specifications for aviation, equipment, hand crews, and local services. Agencies solicit for contracted resources based on local and regional needs and existing agreements with other federal agency or state cooperators (e.g., the Forest Service can use contracted resources on a cooperator’s list). Forest Service fire suppression contracting requires different systems, procedures, and contracting mechanisms than non-fire product and service vendor acquisition and management. National Contracts The national contracting office, the U.S. Forest Service Incident Support Branch for Acquisition Management, contracts both for wildland fire sup- pression “National Shared Resources” and for other emergency incident response activities.26 The unit is responsible for issuing solicitations and national contracts for: air tankers, crew carrier buses, fire- fighter crews, fire retardant, helicopters, mobile food services and mobile shower facilities (see Fig- ure 2, page 7).26 National contracts such as Type 2IA hand crews and national mobile food service contracts require contracted resources to be available for a mandatory period of time and from a preset list of designated or staged points across the US during a mandatory availability period (MAP). The national contract office also sets specifications for the Virtual Incident Procurement (VIPR) sys- tem.8 Solicitations in VIPR are based on National Solicitations: Agency-issued requests for busi- nesses to apply to be vendors of specific re- sources (equipment, crews, services). Solici- tations are issued through the national or re- gional office.21 Mandatory Availability Period (MAP): The specific time frames, usually ranging between 90 and 180 days, when enrolled operators are contractually obligated to federal or state fire protection agencies to have resources ready for deployment when required. Virtual Incident Procurement system (VIPR)8: An online system introduced in January of 2009 to help facilitate federal fire procurement by soliciting, awarding, and administering pre- season agreements for resource needs.22 Forest Service regions use VIPR to issue solicitations and award agreements for resources secured under preseason agreements. To apply for solici- tations for resources in VIPR, contractors must be registered as a contractor approved to do business in the System for Award Management. System for Award Management (SAM)33: The official U.S. Government System for Award Management. Incident Blank Purchase Agreements (I-BPA)23: Agreements issued to contractors that have re- sponded to the solicitation through the VIPR system.23 Call when needed (CWN) resources: Suppres- sion resources under agreements for a certain rate for services or use of equipment, without a guarantee of use or payment. Payment is only rendered if services are needed. Most preseason Incident Blank Purchase Agreements for equip- ment and hand crews are call when need re- sources. Key preseason contracting definitions Definitions Preseason contracting system Fire response order Fire response: Involving private contractors Fire response: Fire growth/ complexity Postfire resource demobilization 2. Preseason contracting system Private Contracting on National Forest Lands: Preseason Contracting and Fire Response 7 Solicitation Templates that the agency uses in or- der to provide consistency in how resources are assessed, acquired and hired.27 Solicitations are issued in order to create Incident Blank Purchase Agreements (I-BPA).23 I-BPAs are awarded to those vendors who offer a fair and rea- sonable price as determined by the Regional and National level Fire Contracting Officers.23 All Pre- season I-BPAs are competitively solicited every three years. If vendors miss the solicitation period, they will not have an opportunity to acquire an I-BPA until the following solicitation period. Most I-BPAs for equipment (and some other contracts) are specified as call when needed (CWN) resources. To receive an I-BPA, the vendor must meet or exceed certain equipment and personnel requirements, in- cluding: • “Equipment meets the minimum specifica- tions and quality standards; • Key personnel possess the minimum train- ing qualifications; • Vendor has acceptable past performance”28 Regional contracting offices validate VIPR informa- tion and issue I-BPAs for their respective region. The appropriate Contracting Officer (CO) for each Figure 1 Solicitations from the National Contracting Office Issues solicitations and national contracts for: tanker, helicopter, aircraft, and fire retardant vendors National Type 2I A crews Mobile food services, shower facilities, and crew carrier buses National Contracting Office Aviation vendors Equipment vendors Hand crew vendors Dispatch Priority List (DPL)24: Lists that are cre- ated for all contracted resources awarded un- der competitive I-BPAs;24 DPLs rank available resources for incident command to order when needed. Choosing by Advantages (CBA)28: Also known as “Best Value,” CBA determines ranking on the Dispatch Priority List.25 CBA was first used in 2007 for ranking water-handling equipment and has expanded to include ranking for all suppression equipment with I-BPAs. Equipment is ranked in this system based on the advan- tages it offers as well as its relative importance when compared to criteria for the equipment type. This means that equipment ranked the highest shows the greatest advantage to the gov- ernment, but does not necessarily mean that it is the best equipment or is offered at the cheap- est price. Interagency Firefighting Crew Agreements (IFCA)34 are awarded and managed by the Ore- gon Department of Forestry for Type 2 firefight- ing private hand crews. Key preseason contracting definitions, cont’d 8 Private Contracting on National Forest Lands: Preseason Contracting and Fire Response dispatch zone (based on Geographic Area Coordi- nation Center regions) generates Dispatch Priority Lists for each equipment solicitation (see Figure 2, below). Dispatch Priority Lists are created for all contracted equipment awarded under competitive I-BPAs. Equipment is ranked on the Dispatch Prior- ity List by the greatest advantage per dollar (per the Choosing by Advantages system).25 The Oregon Department of Forestry awards and manages Type 2 firefighting private hand crews through the Interagency Firefighting Crew Agree- ment (IFCA) for wildland fires within Oregon and Washington.34 These crews can be used on agency fires and in other states through interagency agree- ments between the Oregon Department of Forestry and federal agencies such as the Forest Service. Agencies solicit for contracted resources based upon the needs for their geographic area in light of the availability of resources among other federal and state cooperators. Collectively, these processes (see Figure 3, page 9) help prepare the agency for systematic mobilization and dispatching of resources once a fire begins. Fol- lowing these processes correctly and within speci- fied timeframes is critical for businesses wanting to contract with the Forest Service and other agencies seeking fire suppression support. • Validates VIPR information entered by vendor • Issues preseason incident agreements (I-BPAs) • Creates Dispatch Priority List (DPL) of vendors for resources Regional Contracting Office Local service vendors Equipment vendors Hand crew vendors Figure 2 Pre-season fire procurement between regional contracting offices and private contractors Oregon Department of Forestry Issues contrac ts for Ty pe 2 cr ews Private Contracting on National Forest Lands: Preseason Contracting and Fire Response 9 Figure 3 Pre-season fire procurement system between federal agency and private contractors Regional Contracting Office Local service vendors Equipment vendors Hand crew vendors Issues solicitations and national contracts for: tanker, helicopter, aircraft, and fire retardant vendors national Type 2I A crews National Contracting Office Aviation vendors mobile food services, shower facilities, and crew carrier buses Virtual Incident Procurement (VIPR) System Vendors Apply to solicitation(s) • Sets VIPR specifications • Issues solicitations (every 3 years/item) • Validates VIPR information entered by vendor • Issues preseason incident agreements (I-BPAs) • Creates Dispatch Priority List (DPL) of vendors for resources Oregon Department of Forestry Issu es c ontr acts for Type 2 cr ews 10 Private Contracting on National Forest Lands: Preseason Contracting and Fire Response Private Contracting on National Forest Lands: Preseason Contracting and Fire Response 11 Generally, federal agencies follow a certain se- quence when requesting and mobilizing resources to a fire (see Figure 4, below). As every fire situation is different, these processes vary on the ground. Once a fire ignites on national forest land, the agen- cy typically calls in agency crews and equipment first, followed by other federal agency resources. When available or nearby resources are exhausted, cooperators are called. Cooperators vary by region and agency, but include state agencies (e.g., Depart- ments of Forestry, State Forest Service), and local entities like fire protective associations and county and regional fire departments. Once both available federal agency and cooperator resources have been exhausted, private contractor crews and resources are called. 3. Federal agency fire response process overview Figure 4 General federal agency fire response order of engagement Definitions Preseason contracting system Fire response order Fire response: Involving private contractors Fire response: Fire growth/ complexity Postfire resource demobilization 12 Private Contracting on National Forest Lands: Preseason Contracting and Fire Response When a fire begins, local dispatch is in charge of ordering resources for suppression. Local dispatch utilizes the closest forces concept during Initial At- tack, meaning they use the closest available fire suppression resources, regardless of their ranking on a Dispatch Priority List (DPL).5 During a fire, DPLs are not used exclusively, there are several points at which other vendors without preseason contracts might be used, as we describe here. It is up to the discretion of the Incident Commander at each individual fire incident to decide if and when to use contracted resources with Incident- only Blanket Purchase Agreements (I-BPAs) or other preseason contracts during Initial Attack.23 If a Dispatch Priority List is used for Initial Attack (which is not required) the dispatcher may order the closest resources to the incident, regardless of their Dispatch Priority List or best value ranking.5 Initial attack (IA)29: An organized response by the first resources to arrive at a wildfire, focus- ing on suppression while protecting firefighter safety and public safety and values. All wild- land fires that are managed for suppression begin in Initial Attack. This response includes actions such as, “size up, patrolling, monitor- ing, holding action, or aggressive Initial Attack. The kind and number of resources responding to Initial Attack vary depending upon fire dan- ger, fuel type, values to be protected, and other factors.”29 Host dispatch Center: The Geographic Area Co- ordination Center19 where a vendor is listed. Each solicitation is linked to a host dispatch center or GCC, and resources for that specific item can only be ordered through the host dis- patch center. Incident-only Emergency Equipment Rental Agreements (EERA’s)5: Agreements used to sign up contracted resources if 1) Dispatch Priority Lists are not in use, or 2) if resources are not available due to lack of availability or exhaus- tion of the Dispatch Priority List.5 Incident-only EERAs are valid only for the duration of the incident for which they were signed up. Resource Ordering and Status System (ROSS)30: A national computerized system agencies used to order resources to an incident.30 Key definitions 4. Fire response: Initial attack with private contractors Definitions Preseason contracting system Fire response order Fire response: Involving private contractors Fire response: Fire growth/ complexity Postfire resource demobilization Private Contracting on National Forest Lands: Preseason Contracting and Fire Response 13 When a dispatcher does begin using the Dispatch Priority List for ordering resources, they will con- tact the highest ranked vendor on the list first (the vendor ranked highest for best value to government for that specific resource) to fill the order.28 If that vendor is unavailable or declines to take the con- tract, the dispatcher will continue moving down the list until the order is filled. If an incident or- ders a specific configuration of equipment (e.g., dozer with a winch), the dispatcher will contact the first vendor on the list who has the equipment that meets the needs of the incident. Resources on each Dispatch Priority List can only be dispatched by their assigned Host Dispatch Center (their GACC region). If resources are unavailable through Dispatch Pri- ority Lists (or if the lists are not used during Ini- tial Attack), Incident-only Emergency Equipment Rental Agreements (EERA) are used.5 EERAs are only valid for the duration of the incident. Local service vendors often do not have a preseason I-BPA and thus are not ranked on a Dispatch Prior- ity List before fire season. In these cases, dispatch will make their own local decisions about who to call for services. This varies by region, but in some cases dispatchers have their own regional list of potential local service vendors to contact as needed. Resources are typically requested using the Re- source Ordering and Status System (ROSS).30 The resource order requests will go from the incident to the local dispatch center and if the Host Dispatch Center cannot fill the order, the request will go to the Geographic Area Coordination Center (GACC), which coordinates and mobilizes resources by For- est Service regions.18 14 Private Contracting on National Forest Lands: Preseason Contracting and Fire Response As fire complexity increases and resource availabil- ity wanes, a larger scale response is used, includ- ing the formation of Incident Management Teams (IMT) that change as the fire grows (see Figure 5, page 15). Local dispatch and the GACC work with the Incident Management Team to communicate and fill resource requests. If an incident transi- tions from Initial Attack to Extended Attack, the Incident Commander can decide to replace EERA- contracted resources with contracted resources from the Dispatch Priority List, depending on in- cident operational needs and objectives.32 Once in Extended Attack stage, the Dispatch Priority List is exclusively used for requesting any additional contracted resources for the incident. When additional resources are needed at the na- tional level, the National Interagency Coordination Center (NICC) is engaged.16 The NICC is “the focal point for interagency coordination of the mobiliza- tion of resources for wildland fire and other inci- dents throughout the United States.”14 Complexity: Complexity on a fire occurs when a complex situation arrises, such as multiple fires occurring simultaneously (stretching re- sources and response), multiple agencies are involved in incident(s), and/or when there is high competition for suppression resources. Extended Attack31: The suppression approach for a wildfire that has not been controlled by Initial Attack and requires more resources. At this point, the Incident Commander in charge of Initial Attack has recognized that Initial At- tack forces are not sufficient to control the fire, and has ordered more firefighting resources to aid in suppression.31 Key definitions 5. Fire response: Fire growth and complexity Definitions Preseason contracting system Fire response order Fire response: Involving private contractors Fire response: Fire growth/ complexity Postfire resource demobilization Private Contracting on National Forest Lands: Preseason Contracting and Fire Response 15 The Incident Commander determines demobiliza- tion priority. For tactical equipment, contractors awarded I-BPAs from competitive solicitations typi- cally have priority to remain on the incident lon- ger than incident-only EERAs, unless the Incident Commander determines otherwise.5 Figure 5 Fire response process for federal agency once private vendors are called Incident Management Teams (IMTs) Local service vendors Local dispatch Geographic Area Coordination Center (GACC) National Interagency Coordination Center (GACC) Equipment vendors D P L ve nd or s Hand crew vendors Aviation vendors 6. Fire response: Demobilization of contracted resources Definitions Preseason contracting system Fire response order Fire response: Involving private contractors Fire response: Fire growth/ complexity Postfire resource demobilization As fire complexity and resource needs increase, larger scale response is called • Utilizes closest resources available first • Utilizes Dispatch Priority List (DPL) as needed Resources typically requested through the Resource Ordering & Status System (ROSS) 16 Private Contracting on National Forest Lands: Preseason Contracting and Fire Response Endotes 1 D. Calkin, M. Finney, A. Ager, M. Thompson, and K. Gebert. “Progress towards and barriers to implementation of a risk framework for US federal wildland fire policy and decision making.” Forest Policy and Economics 13 (2011): 378–389. 2 National Interagency Fire Center, “Federal Firefighting Costs (Suppression Only.” 1985-2014 Available at: https://www.nifc. gov/fireInfo/fireInfo_documents/SuppCosts.pdf. Last accessed: September 29, 2015. 3 National Interagency Fire Center, “National Fire News: Year to Date Statistics” 2005-2015 Available at: https://www.nifc.gov/ fireInfo/nfn.htm. Last accessed: September 29, 2015. 4 USDA Forest Service, “The Rising Cost of Wildfires: Effects on the Forest Service’s Non-Fire Work”. August 4, 2015. Available at: http://www.fs.fed.us/sites/default/files/2015-Fire-Budget- Report.pdf. Last accessed: September 29, 2015. 5 National Interagency Fire Center, “2015 National Dispatch Standard Operating Guide for Contracted Resources: A Guide for Dispatchers & Incident Support Personnel.” January 2015. Available at: http://www.nifc.gov/nicc/logistics/references/ National_SOG_Contracted_Resources_Guide.pdf. Last accessed: September 29, 2015. 6 National Interagency Coordination Center, “National Interagency Mobilization Guide: Geographic Areas.” March 2015, NFES 2092. Available at: http://www.nifc.gov/nicc/mobguide/. Last accessed: September 29, 2015. 7 National Wildfire Coordinating Group. “Wildland Fire Incident Management Field Guide”. PMS 210, NFES 002943, January 2014. Available at: http://www.nwcg.gov/sites/default/files/ products/pms210.pdf. Last accessed: September 29, 2015. 8 USDA Forest Service Acquisition Management, “Acquisition Management - Incident Procurement - Virtual Incident PRocurement (VIPR).” Available at: http://www.fs.fed.us/business/ incident/vipr.php). Last accessed: September 29, 2015. 9 National Wildfire Coordinating Group. “Wildland Fire Incident Management Field Guide”. PMS 210, NFES 002943, January 2014. p. 129. Available at: http://www.nwcg.gov/sites/default/ files/products/pms210.pdf. Last accessed: September 29, 2015. 10 For a detailed description of crew standards see Chapter 13, “Firefighter Training and Qualifications” in: Department of the Interior and Department of Agriculture, “Interagency Standards for Fire and Aviation Operations.” January 2015, NFES 2724 Available at: http://www.nifc.gov/PUBLICATIONS/ redbook/2015/ Chapter13.pdf. Last accessed: September 29, 2015www.nifc.gov/fireInfo/fireInfo_documents/SuppCosts.pdf. Last accessed: September 29, 2015. 11 Equipment specifications can be found at: USDA Forest Service Acquisition Management, “Acquisition Management - Equip Stnds, MOH, Inspections, & Misc Attachments.” Available at: http://www.fs.fed.us/business/incident/equipment.php. Last accessed: September 29, 2015. Conclusion The processes of private contracting, from preseason solicitations and contracting to initial and extended attack, are complex and constantly evolving. Under- standing how private contracting operates within the Forest Service’s pre-fire contracting and fire re- sponse structures is key in a time of increasing fire suppression costs and complexity. In this document, we paint a broad picture of how private contracting works, from a terminology, process and procedure perspective. What is clear is the intertwined nature of these processes, between dispatch and contract- ing agencies and contractors, often through multi- scale systems. Navigating this complicated and evolving arena is critical for those looking to un- derstand not only how the process works, but also to better identify potential barriers to entry for those looking to participate (or expand presence) in this marketplace. In our research, interviewees and key contacts re- ported that individuals within this multilayered system are often focused on their own roles and procedures, but few understand the totality of the contracting process. For others, terminology and process complexity serve as barriers to a more com- prehensive understanding. We developed this docu- ment with the intent of providing a fuller picture and clarifying key terms and processes. Our hope is that this resource stimulates discussion among fire suppression professionals, contractors, and other in- terested stakeholders regarding issues such as the ef- fectiveness of current contracting systems, barriers to marketplace access, and the spatial distribution of contracting opportunities. We also encourage read- ers to explore the additional resources listed below. Private Contracting on National Forest Lands: Preseason Contracting and Fire Response 17 12 For additional information on services, see page 11 in: National Interagency Fire Center, “2015 National Dispatch Standard Operating Guide for Contracted Resources: A Guide for Dispatchers & Incident Support Personnel.” January 2015. Available at: http://www.nifc.gov/nicc/logistics/references/ National_SOG_Contracted_Resources_Guide.pdf. Last accessed: September 29, 2015. 13 National Wildfire Coordinating Group. “Wildland Fire Incident Management Field Guide”. PMS 210, NFES 002943, January 2014. p. 129. Available at: http://www.nwcg.gov/sites/default/ files/products/pms210.pdf. Last accessed: September 29, 2015. 14 National Interagency Fire Center. Available at: https://www.nifc. gov. Last accessed: September 29, 2015. 15 USDA Forest Service Acquisition Management, “Acquisition Management-Incident Procurement Contracts: Acquisition Management (AQM) Regional Contracting Officers.” Available at: http://www.fs.fed.us/business/incident/contacts.php. Last accessed: September 29, 2015. 16 National Interagency Fire Center, “National Interagency Coordination Center (NICC).” Available at: http://www.nifc. gov/aboutNIFC/about_main.html. Last accessed: September 29, 2015. 17 National Interagency Fire Center, “About NIFC: National Interagency Coordination Center (NICC).” Page 1. Available at: http://www.nifc.gov/aboutNIFC/about_main.html. Last accessed: September 29, 2015. 18 National Interagency Coordination Center, “Welcome to the National Interagency Coordination Center.” Geographic Area Coordination Center map. Available at: http://www.nifc.gov/ nicc/. Last accessed: September 29, 2015. 19 See Chapter 70 (pg. 87) in National Interagency Coordination Center, “National Interagency Mobilization Guide: Geographic Areas.” March 2015, NFES 2092. Available at: http://www.nifc. gov/nicc/mobguide/. Last accessed: September 29, 2015 20 National Park Service, “Fire and Aviation Management: Incident Command System (ICS)” Available at: http://www.nps.gov/fire/ wildland-fire/learning-center/fire-in-depth/incident-command- system.cfm. Last accessed: September 29, 2015. 21 USDA Forest Service Acquisition Management, “Acquisition Management-Incident Procurement-Solicitations: National Solicitation Templates.” Available at: http://www.fs.fed.us/ business/incident/solicitations.php. Last accessed: September 29, 2015. 22 USDA Forest Service Acquisition Management, “Virtual Incident PRocurement system (VIPR).” Available at: http://www.fs.fed.us/ business/incident/vipr.php. Last accessed: September 29, 2015. 23 USDA Forest Service Acquisition Management, “Acquisition Management-Incident procurement-Preseason I-BPA Information.” Available at: http://www.fs.fed.us/business/incident/ eera.php. Last accessed: September 29, 2015. 24 USDA Forest Service Acquisition Management, “Acquisition Management-VIPR Dispatch Priority Lists (DPL).” Available at: http://www.fs.fed.us/business/incident/dispatch.php. Last accessed: September 29, 2015. 25 USDA Forest Service Acquisition Management, “Acquisition Management-Incident procurement-Best Value Awards” Available at: http://www.fs.fed.us/business/incident/bestvalue. php. Last accessed: September 29, 2015. 26 See homepage of National Interagency Fire Center, U.S. Forest Service Incident Support Branch for Acquisition Management Solicitations and National Contracts. Available at: http://www. fs.fed.us/fire/contracting/. Last accessed: September 29, 2015. 27 Solicitations in VIPR are based on National Solicitation Templates Available at: http://www.fs.fed.us/business/incident/ solicitations.php. Last accessed: September 29, 2015. 28 See “Choosing by Advantages (CBA) Information: in: USDA Forest Service Acquisition Management, “Acquisition Management-Incident procurement-Best Value Awards” Available at: http://www.fs.fed.us/business/incident/static Choosing%20by%20Advantages.pdf. Last accessed: September 29, 2015. 29 See page 17 of: National Wildfire Coordinating Group. “Wildland Fire Incident Management Field Guide”. PMS 210, NFES 002943, January 2014. Available at: http://www.nwcg. gov/sites/default/files/products/pms210.pdf. Last accessed: September 29, 2015. 30 Resource Ordering & Status System (ROSS). Available at: http://ross.nwcg.gov. Last accessed: September 29, 2015. 31 See page 23 of: See page 17 of: National Wildfire Coordinating Group. “Wildland Fire Incident Management Field Guide”. PMS 210, NFES 002943, January 2014. Available at: http:// www.nwcg.gov/sites/default/files/products/pms210.pdf. Last accessed: September 29, 2015. 32 See page 12 of National Interagency Fire Center, “2015 National Dispatch Standard Operating Guide for Contracted Resources: A Guide for Dispatchers & Incident Support Personnel.” January 2015. Available at: http://www.nifc.gov/ nicc/logistics/references/National_SOG_Contracted_ Resources_Guide.pdf. Last accessed: September 29, 2015. 33 System for Award Management (SAM). Available at: https:// www.sam.gov/portal/SAM/##11. Last accessed: September 29, 2015. 34 Oregon Department of Forestry, “Interagency Firefighting Crew Agreement (IFCA) Crew Contract.” Available at: http://www. oregon.gov/ODF/Fire/Pages/Contract.aspx. Last accessed: November 3, 2015. 18 Private Contracting on National Forest Lands: Preseason Contracting and Fire Response Acronyms CBA Choosing by Advantage CO Contracting Office(r)s CWN Call when needed DPL Dispatch Priority List EERA Emergency Equipment Rental Agreements GACC Geographic Area Coordination Centers I-BPAs Incident Blank Purchase Agreements IA Initial attack IMT Incident Management Team NDSOG National Dispatch Standard Operating Guide for Contracted Resources NICC National Interagency Coordination Center NIFC National Interagency Fire Center ROSS Resource Ordering and Status System SAM System for Award Management Type 2 Type 2 qualified wildland firefighter crews Type 2-IA Type 2 Initial Attack (IA) qualified wildland firefighter crews VIPR Virtual Incident PRocurement Appendix A: Acronyms