Scratchline Issue 25

7/29/2019 Scratchline Issue 25

1/8

Issue 25 2009 A Lessons Learned Newsletter Published Quarterly

www.wi ldf i relessons.net

In This IssueNotable Successes ...............................1

Difcult Challenges ............................. 4

Effective Practices ...............................5

Training Recommendations................6

Liaison Ofcer Role ............................. 8

How to Contact Us:[email protected]

[email protected]

[email protected]

(520) 799-8760 or 8761

fax: (520) 799-8785

Learning in Action

One of the most notable successes for one Liaison Ofcer (LOFR) and h is Inci-

dent Management Team (IMT) occurred during the 2006 Brins Fire in Sedona,

Arizona. The Sedona area experiences extremely low re frequency. Conse-

quently, local government ofcials, stakeholders and the public were not thinking

about re, nor did they have much re knowledge. During the incident, re of-

cials evacuated both the Mayor and the Town Manager from their homes. Both

attended morning briengs every day and the LOFR as well as other members

of the IMT assumed that they understood re terminology, overall tactics and

operational objectives. However, a few days into the re, the LOFR sat next to

the Mayor, Town Manager, Fire Chief and members of the Town Council, and as

the brieng came to an end, he realized that they appeared confused and that

they had questions.

Liaison OfficerLessons Learned

The LLC staff recently interviewed seven Liaison Ofcers and Liaison Ofcer Trainees from around the United

States regarding their notable successes, difcult challenges, effective safety practices, and training recommen-

dations for Liaison Ofcers. Special thanks are extended to these Liaison Ofcers and trainees for sharing their

signicant lessons and practices with the wildland re community.

Lessons

Learned

Center

Wildland

Fire

Notable Successes

Continued on page 2

A lesson is truly learned when we modify our behavior to reect what we now know.


2/8

2

The LOFR explained the Incident Action Plan to them, de-

scribed what it entailed, and how the IMT used it and why. He

also familiarized these local ofcials with the Incident Response

Pocket Guide and its use in wildland re operations. For three

to four mornings in a row, the LOFR met with these ofcials,

helping build a communication bridge to the local community

and helping the Mayor and her staff to understand what theIMT was doing to assist the community of Sedona. At the end

of the incident, the Mayor presented the Incident Commander

and the IMT with a key to the city. This was only the second

time a key had ever been presented in the history of the city.

Liaison Ofcers on All Hazard Assignments

In 2004 one Liaison Ofcer for a National Park Service IMT re -

sponded to assist the Gulf Islands National Seashore after Hur-

ricane Ivan hit the Pensacola, Florida area. The NPS missioninvolved helping to stabilize and restore the Seashores opera-

tions and the lives of its employees. The Liaison Ofcer worked

closely with surrounding Type 1 and Type 2 IMTs conductingFEMA support operations. Because the NPS team was operat-

ing under different authorities and funding than the neighboring

IMTs, the relationship was one of cooperating agencies, ratherthan adjacent resources. However, by coordinating with them,

the LOFR capitalized on expediting reassignments for soon-to-

be-released resources, enabling the NPS IMT to efciently ll

critical resource needs and reduce costs.

Positive Relationship Dividends

The Alamo Fire of April 2008 ignited on the US/Mexico border

west of Nogales, Arizona. Wildland reghters from Sonora,

Mexico successfully interfaced with the Type 2 IMT and worked

as a division of the incident. Strong cross border rapport ex-

isted throughout the incident because Sonora, Mexico incidentcommand personnel and the Type 2 IMT established personal

contact. This included brieng of Sonoran incident command

personnel in the Type 2 IMT re camp and providing a reconight of the re. Toward the end of the re, the IMT invited the

Mexican reghters into the U.S. for an awards ceremony. The

Mexican reghters received plaques and gifts for their effortsat working in close cooperation with their US counterparts.These positive interactions pay dividends in other emergency

responses outside of wildland re. Following the Alamo Fire, a

ood occurred in the Nogales Wash during July 2008, causingsignicant damage on both sides of the border. Members of

the same Type 2 team played central roles in this incident, and

the relationships they had previously developed during the Ala-mo Fire contributed to the success of this ood response effort.

The resulting cross border relationships continue to develop.

Being Well Respected is Key

During the Columbia Shuttle Recovery in February 2003, the

host agency requested from the Texas Forest Service the

right person to act as Liaison Ofcer to the IMT. The implied

meaning of this request meant a well respected and well known

person in the community that could get things done, especially

with the ability to obtain permission for search crews to access

private land when sensitive issues were involved. These issues

included searching through large cemeteries, poultry opera-

tions, and areas where personnel needed to open gates and

cross fences. In every case, the Liaison Ofcer, who involved

landowners he knew and trusted, paved the way for the search

teams to act safely and gain acceptance. A LOFR must not be

a loafer means the right person in the position is the key for

success.

Sedona Residents Observing Brins Fire

Courtesy of David Sunfellow, Sunfellow Photography


3/8

33

Overcoming Hurdles Through Communication

Following Hurricane Katrina, one IMT reported to Camp Shelby in Mississippi to establish a support base approximately 50 miles north

of Gulfport. Upon arrival, the team learned that the Base Commander could provide only minimal assistance, as he had to prepare

troops to go to the Iraq war. The Base Commander could assist in locating land near or on the base to use for special rescue relief

camps, and make motor pool parking lots available for staging trucks and supplies.

The IC advised the Base Commander that the IMT would work to prevent any interference to his primary mission. IMT members housedon the base until the team established an ICP at Baron Point south of the base. FEMA requested assistance from the IMT to deploy

truckloads of water and ice throughout the region, meaning the team needed to manage the activity of the truck drivers and support

them with fuel and food. The Liaison Ofcers met with a Major assigned from Camp Shelby each day and attended meetings with

personnel from the local city and county Emergency Operations Center (EOC) for the purpose of updating and sharing information with

city, district and volunteer re departments.

Two major problems arose during the assignment. First, the IMT had trouble locating a place to take black and gray water from the

camps. Fortunately, the LOFRs had established good lines of communication with the surrounding communities, and the issue was

resolved. The team contacted one of the local volunteer re chiefs and he assisted in nding a location to dump the water.

The IMT also faced radio communication issues. First the IMT was advised that they were required to hold a license to use a portable

radio cache in the state of Mississippi. Again, the daily communication with the local and state ofcials through the EOC paid off, and

the team obtained the required license. When the IMT needed a radio repeater location, the LOFRs went back to the volunteer re

chief, who also managed the water district. Though the team had been advised earlier that they could place nothing on the towns water

tower, the IMT felt this tall tower would ll the need well. The LOFRs asked and, thanks to good rapport with the re chief, within four

hours had the radio repeater placed on the tower. According to the LOFRs, when the IMT completed its tour and was relieved, they

were asked how they did it, and the IC stated good Liaison Ofcers.

Photo courtesy of David Sunfellow

Sunfellow Photography

Bringing Cooperators and the Public Together

For one Liaison Ofcer, one memorable success occurred during the 2008 lightning res in Butte County, California. Lightning ignited

more than 1000 res and the complex of res had been burning for well over ve weeks. The reghters, cooperators and the public

were exhausted. Fire ofcials had completed emergency logging to remove hazardous fuels in several areas, and the public was frus-

trated by problems with the fuel loads left on the ground around repaired power lines. The Liaison Ofcer brought cooperators and the

public together in daily cooperators meetings, as well as in town meetings within the community. Bringing the utility company together

with the public, and the company doing the fuel reduction, was a huge success and a benet to the community.


4/8

4

Behind the Power Curve

One Liaison Ofcer feels that transition with another IMT, when the outgoing Liaison Ofcer has only been doing part of the job, leaves

the incoming LOFR behind the power curve. Because the National Wildre Coordinating Group (NWCG) standards require no trainingor other requirements for qualication as a LOFR, some individuals lling the position lack sufcient preparation to do the entire job. Forexample, because some of the current LOFRs come from law enforcement backgrounds, they think that the Liaison Ofcer only needsto interact with law enforcement agencies and personnel. The position actually encompasses much more, including interaction withelected ofcials, the American Red Cross, and all local government emergency agencies and organizations. The LOFR will struggleto catch up when they must make key contacts if another IMT has been on-scene without establishing these contacts. When this hap -pens, if much time has passed, the representatives from the organizations who have not yet been contacted will wonder why they arebeing contacted at this point.

Distributing Accurate Information

One Liaison Ofcer was assigned to an incident on the Los Padres National Forest in California, after working on another nearby wild-re. Due to the proximity of the two res, the IMT co-located the Incident Command Post (ICP) and base camp. A LOFR attached to theICP dealt with issues as they arose, and met with military and re ofcials from the Armys Fort Hunter Liggett. Another Liaison Ofcermet with local landowners on the inland side of the re, while additional LOFRs and public information ofcers assigned to the Big SurCoast, made contact with all businesses, residents, landowners, the California Highway Patrol, county sheriffs, county and state park

rangers, CalTrans and the Big Sur Volunteer Fire Department.

The Big Sur Coast area, which had been previously impacted by wildres, did not have good relationships between re agencies andthe residents, landowners and business owners. The IC assigned two Liaison Ofcers and two Public Information Ofcers to the coast24 hours per day, 7 days per week to make local contact and establish community meetings. Issues requiring attention included; closingHighway 1, for any reason other than reghter or public safety, to avoid impacts on local businesses; keeping local business ownersand homeowners informed; and making contact with the local Congressional ofce and special interest groups such as the Hermitage

Center, the Jade Fair and other special events.

The LOFRs found routine communication avenues, such as radio and television, ineffective for getting their message out. After locatinga person with great citizen band radio (CB) communication throughout the communities along the coast, the IMT developed a posi -tive relationship with this individual and she delivered the re information update each morning, or during the day if necessary. Localcitizens listened to her and this practice proved effective. The LOFRs also maintained a steady working relationship with the CaliforniaHighway Patrol, CalTrans, California State Parks and local county park ofcials. A LOFR met with them every morning after the IMT

brieng and continued making contact with the locals.

High Level Communication Processes

Evacuations present a high risk to emergency responders. When responders are making their way into a re as citizens evacuate, theresulting confusion can lead to collisions, trafc jams and re entrapments if all responding agencies and utility companies fail to worktogether. One Liaison Ofcer feels that one can succeed only if they pull the responding resources together, and this LOFR has placedreghter supervisors together with law enforcement supervisors to enable them to oversee operations involving evacuation or rescue.

He stresses the need for a high level communication process.

Liaison Ofcers succeed best when able to communicate face-to-face, allowing the LOFR to employ body language, tone of voice andlanguage in their communications. This communication needs to be supported by legal authority from the agency and the IC. To suc -ceed, the LOFR must know the Incident Commanders objectives and goals, and must gain that understanding through open discus-sion with the IC whenever they meet and via phone throughout the day.

The need for this high level communication process is important, where people have opportunity to assess the unspoken body lan -guage of agency representatives. By anticipating potential issues and dealing with them quickly the LOFR can prove instrumental increating a lasting impression and success. The LOFR should assure that they are communicating with agency representatives whohave decision-making authority for their agency and can commit to pay for operations. A Liaison Ofcer makes or breaks their effec -tiveness by how well they show respect for the different workforce disciplines. Rarely do emergency operations succeed without thisrespect. This success lies in protecting the responders and the public, while bringing a calming effect to the incident.

Making Commitments and Keeping PromisesMaking sure all communication loops are closed remains a continuing challenge on some incidents. While Liaison Ofcers are in thebusiness of making commitments and promises, they also must make sure they follow through. Do not leave the incident without closingpartnership and cooperator issues. Maintain a close communication link with the IC particularly when the LOFR is speaking for them. Ifissues remain unresolved DO NOT leave an incident without letting the assisting and cooperating agencies know that these issues existor that commitments may not have been met. Be honest, be punctual, and know your business, as well as your IMTs business.

Political and Bureaucratic Issues

One Liaison Ofcer notes that some of the challenges a LOFR faces include political and bureaucratic processes. Given the frustrationsof politics and bureaucracy, it is important to remain positive and focused on the task at hand. There are many ways to accomplish the

needs of the incident. Taking the high road is a must. The roadblocks will come, so back up and take a breath and communicate with

the command staff of the IMT about alternate solutions.

Difcult Challenges


5/8

5

Collecting Intelligence Prior to an AssignmentOne Liaison Ofcer immediately accesses the Internet andlearns as much background information he can about the com-munity once he knows the name and the location of the inci -dent to which they are being dispatched. He nds out who theelected ofcials are, their background, what they look like, andthe political persuasions of the county and the state. Manywebsites include detailed biographies on elected ofcials thatsometimes contain where they are originally from and their per-sonal interests. The LOFR prints out the information they ndand studies it while enroute to the incident. He also reviews theinformation with the IC and Deputy IC, so they also understandthe background of the community. This Internet research evenhelps when the IMT rst meets with local ofcials, because theyoften can spot individuals from their photographs on the Inter-net. Furthermore, he often nds county and local communityemergency operations plans, or Community Wildre Protection

Plans, on the Internet prior to leaving for the incident.

Effective Practices between the team and the rancher. Understanding the priori-ties of landowners requires that someone take the time to getto know people. In doing this, the LOFR must develop trust withpeople, and that may include talking to them about uncomfort-able subjects, such as a difcult decision the IMT must makeregarding evacuations, or even the fact that you might not be

able to save their pasture.It helps for the Liaison Ofcer to have some knowledge ofre behavior. The LOFR should keep tight with operationspersonnel so that they know what they are doing and can ex -plain it to others. A LOFR must have the ability to talk to every -one from the rancher to the politician because more and moreof the wildland res are crossing multi-jurisdictional authorities.Stay ahead of the issues to keep ranchers and communitymembers comfortable. Let them know about damages and theplans to x them before they have a chance to come to you

with problems.

The LOFR position requires an extroverted person. The LOFRmust be willing and able to approach people they do not know,introduce themselves, learn where they t into the community,and talk about their concerns. In short, Liaison Ofcers mustput themselves out there. They can take lessons learned from

their re experiences back to their home unit to further develophabits and their LOFR skill set.

Using a Multi-Disciplinary ApproachA Liaison Ofcer needs a global, multi-disciplinary perspective

of the emergency response world. Expertise in the type of inci-

dent whether re, ood, or hurricane proves important, as does

an understanding of the big picture. The consequences of the

incident and the various disciplines needed to interface with the

IMT are also an integral component.

Every emergency responder tends to look at an incident througha set of binoculars unique to their particular discipline. Police,re, emergency medical services, health, environmental, ag-ricultural, mass care; all bring their unique view of the world.One Liaison Ofcer has marveled at the multidisciplinary re-sponse to a large scale emergency as he observed how thedifferent disciplines brought a narrow view of the incident andfailed to recognize the importance of cooperation and interac -tion to achieve the highest quality outcome. Consequently, abig picture perspective proves critically important for the Liai -

son Ofcer.

The emergency management discipline requires big picturethinking. If the community benets from a proactive local emer-gency manager who does their job, they will represent a cen -tral participant in any emergency response. One experiencedLOFR observed that some Arizona counties respond to emer-gencies extremely well. Others stay at arms length from theincident and fail to achieve the emergency managers mission.This arms length approach may reect a lack of emergency re-sponse background. While the emergency manager may pos-sess strong administrative skills, they may be less comfortablein the emergency response environment and consequently fail

to become a player.

The effective emergency manager serves as an invaluable allyto the Liaison Ofcer. If the LOFR is fortunate to be in a juris-diction with a proactive emergency manager, they must makethe emergency manager one of their rst contacts. They willbecome a central point of contact for any emergency responseasset within a community.

Border Assignment PreparationBob Orrill, Liaison Ofcer with the Southeast Arizona Type 2 IMT, presented this slideshow at the 2009 Southwest IMTMeeting. If teams or individuals are sent to work on incidents along the US/Mexican border, the safety information in thisslideshow is invaluable. http://wildrelessons.net/documents/Border_Fires.htm

Photo Courtesy of Pruett Smalls Type 2 IMT

Building Relationships QuicklyInter-personal skills represent one of the most important skillsa Liaison Ofcer can have. When an effective LOFR arrivesin a place where they do not know anyone, they must work toquickly build relationships. A LOFR should think about whetherthey know people in the area if they have been there before,or talk to others who may have created local contacts. Exist-ing contacts can create an open door into the community forthe LOFR. The LOFR should always look people directly in theeye when talking to them, and try to remember names. Thesecommunication practices give the person the LOFR is talkingto a level of respect and they will note that small fact. In thebusiness world, executives might go out and play a game ofgolf to build the relationship. LOFRs have no time for a roundof golf but try to build the relationship by making contact and

listening.

People relate to another person and will talk to them when theyknow the other person takes a personal interest in them theirpriorities and their values. A rancher may or may not care howmany trees are burning, but the pasture land may be the mostimportant thing to him. If the IMT misses or misunderstandsthis thinking, the IMTs priorities may damage the relationship


6/8

6

Blending Background and Training

A Liaison Ofcer with a background in law enforcement, wildland re, or structural re is very benecial. Although no training is re-

quired, one experienced LOFR recommends, at a minimum, a person lling the LOFR position should take S-130/190 Basic WildlandFireghter, ICS 100/200 Introduction to the Incident Command System, L-180 Human Factors on the Fireline, and the Annual Fireline

Safety Refresher. Also important is S-420 Command & General Staff, L-480 Incident Management Team Leadership, and hopefully

someday the position will be included in S-520 Advanced Incident Management course. In addition to training, a Liaison Ofcer needs

the right personality for the job. An individual can have all the qualications, training, and re background, but if they lack the personality

for the job and anger a high powered ofcial, they will struggle and undermine all the IMTs efforts.

Qualication Standards for LOFR

One experienced Liaison Ofcer believes that NWCG must establish a qualication standard for the LOFR position. Currently, the

NWCG requires no training or prerequisites for this position; anyone can step into it without some working knowledge of wildland re,and this needs to change.

The individual must have strong communication skills, since the job is all about building and maintaining relationships. Every IMT andLOFR must want to leave the unit or community as good, or better, than when they arrived. This is all about contact and service.

One Liaison Ofcer was once a line ofcer in his regular job, and believes that this background helps him serve as an effective LOFR.Because he has walked in the line ofcers shoes, he knows how a line ofcer would like things to look when an IMT leaves an incident.

He recommends taking the time to train and mentor new LOFRs. On his last IMT assignment, the LOFR trainee worked with localemergency ofcials at the emergency operations center to build a community protection plan. The LOFR counseled the trainee to avoiddoing the local emergency ofcials work for them, but to assist them in building the plan.

Teaching the Liaison Ofcer Course

CalFire teaches S-402 Liason Ofcer to Division and Battalion Chiefs attending their Agency Representatives Course. They commit 40

hours of instruction, combined with scenarios on department administration and nance, agreements and contracts, laws and policies,

operations abilities and expectations, ICS standards, and demobilization. The S-402 training course includes scenario based questions

for small group discussion and problem solving, and actual incident issues provide the best scenarios.

Educating About the Liaison Role

In retirement, one Liaison Ofcer teaches a variety of incident command courses, primarily for state and municipal employees involved

in all hazard response. Most of his students have limited exposure working with organized Type 1 or 2 Incident

Management Teams, and many seem to think that the Liaison Ofcer maintains some tactical role on an

incident. This raises the concern that these students may confuse the LOFR role with the Opera-tions Section Chief, thinking that the LOFR somehow maintains control of the agency-provided

resources they represent. Others tend to confuse the roles of Agency Representative

with that of LOFR, saying they often work on incidents as the Liaison Ofcer fortheir agency.

This Liaison Ofcer believes it is important for in-

dividuals being trained to understand

important distinctions between roles.

As more local Type 3 and state level

Type 2 IMTs are formed nationwide,

people will need to fully understand

the distinctions between posi-

tions. All emergency responders

should establish a rm grasp

of the fundamentals of the In-

cident Command System asan anchor point. More emer-

gency responders, who tradi-

tionally do not get to work with

established IMTs, should be

given opportunities to shadow

IMTs during actual emergen-

cies and other events. New

Liaison Ofcers will learn more

in a single shadow assignment

than they will in a classroom

setting.IC Brieng the MediaPhoto courtesy of Great Basin Type 1 IMT

Training Recommendations


7/8

Integrated Emergency Management Course

According to one Liaison Ofcer, FEMAs Integrated Emergency Management Course (IEMC) represents one of the best big picture

training courses available for a Liaison Ofcer. The IEMC course typically consists of three days of classroom training and two

days of exercise. The curriculum uses a global view of all disciplines in an emergency or disaster response, including the roles of

everyone from front line responders, through traditional emergency managers at the local level, up to the federal level. Attendees

at an IEMC course come from a specic community, and this represents an important feature of the training. Participants include

political leaders such as the mayor, public works, health department, police chief, re chief and other department heads, as well as

front-line personnel.

Given the challenges of joint US/Mexico emergency response, personnel from the states of Arizona and Sonora attended a unique

opportunity in February 2009, when the rst bi-national IEMC was held at the Emergency Management Institute (EMI) in Emmitsburg,

Maryland. Approximately 70 people attended the course, many from Nogales, Arizona and Nogales, Sonora.

IEMC provides the opportunity to work through exercises as a community, but away from the distractions of home. Ultimately, the

participants interact with, and become immersed in, the training environment for ve days. Since Emmitsburg is somewhat isolated

and people reside in a dormitory setting, they have abundant opportunity to socialize, talk shop, and bond as a community-wide team

during off hours. Given the success of the rst bi-national IEMC, the EMI plans to conduct more of these courses for other communities

along the US/Mexico border.

To view information about the IEMC course go to http://training.fema.gov/EMIWeb/IEMC

7

Simulation Training

Courtesy of Eric Steele

NAFRI AV


8/8

uuu 8

IMTs have been lling this position due to the complex interagency nature of wildland re suppression, the threats of wildland

re to the wildland urban interface, and the complex nature of all hazard assignments which are a complicated mixture of in-

teragency relations including all federal, state, local, and volunteer agencies and groups. Wildland res involving the wildland

urban interface place the IMT and the IC in the position of needing to develop and maintain early communications with the

extended public and cooperators being affected by the wildland re. All hazard assignments can include FEMA, military, fed -

eral and state EMS, local governments, contractors and other non-governmental organizations (NGO), who all need internal

communications with the IMT. The LOFR can be critical in aiding the IMT in cost reduction efforts by making early contact with

cooperators who can aid in the management of the incident either tactically or nancially. The LOFR will report directly to the

IC or the DPIC.

The role of the team LOFR is to:

a. Proactively seek out involved and/or interested entities, organizations, various agency representatives and liaisons,

military contacts, NGOs and other groups who are immediately affected by the incident being managed or that may be

affected by the incident at a future date.

b. Ensure that assisting and cooperating agency and NGO needs are met, and these agencies and NGOs are used in an

effective manner.

c. Foster good working relationships and communications with local agency administrators, NGOs and their designated

liaison ofcers.

d. Maintain a list of assisting and cooperating agencies, NGOs and their representatives. Provides that list to the IMT.

e. Assist in setting up and coordinating interagency and other NGO contacts and meetings.

f. Monitor incident operations to identify current or potential inter-organizational problems.

g. Participate in planning meetings, providing current resource status, including limitations and capabilities of cooperating

agency, and NGO resources.

h. Provide agencies and NGO specic demobilization information and requirements.

i. Seek out any potential agency or NGO cooperators that may be able to offset the costs of the suppression activities

through coop agreements. Ensure that these entities are introduced to the FSC for the development of these agreements.

j. As a part of the National Response Plan (NRP) the Liaison Ofcer will act as the communication link between the IMT and

any Joint Field Ofce (JFO) that may be established. The Liaison Ofcer will also be the main communication link

between the IMT and any State, County or Local Operations Centers that are established.

Liaison Ofcer RoleFrom the Great Basin IMT Handbook

IC and LOFRStrategizing with IMT

Photo Courtesy ofDugger Hughes Type 1 IMT

Scratchline Issue 25

Documents

Transcript of Scratchline Issue 25