USDA Forest Service
File Code: 6640 Date: April 15, 2004
Route To:
Subject: Response to Chief's Incident Accountability Report and 2003 Action Plan
To: Deputy Chief for Business Operations
In response to the "Chief's Incident Accountability Report and 2003 Action Plan" letter dated March 19, 2003, the Washington Office, Information Resource Management Staff took the lead in providing guidance concerning the "Acquisition of Communication Devices" issue. The acquisition and use of communication devices has been cited as a problem on incidents. A considerable amount of money is expended annually on landline phones, cell phones, satellite phones, and various specialized radio and computer equipment to support incidents. While communications is vitally important, it is also important to ensure that expenditures are cost-efficient.
In an effort to review the telecommunications needs during fire incidents, and to provide our report of findings and recommendations, a team was established that reviewed existing communication policies, conducted field visits, sent out a questionnaire, reviewed and analyzed data.
Today's technology is much faster, more reliable, and at times, required in a short timeframe. Computers and networking have become necessary in incidents and the Internet has proven vital during incidents and connections with involved agencies. While we need to be more cost-efficient in our day-to-day activities, supporting an incident tends to have an urgent need, and as a result, negotiating for the best price or additional skill levels may not be the top priority at the given time.
The following findings and recommendations relate to how this team expects to decrease telecommunications costs paid to support incidents:
FINDING
According to information received from members of the incident teams supporting telecommunications activities, there appears to be breakdowns between the communications and computer incident staffs, especially when they are required to report to different unit leaders. These inadequacies are very apparent and have increased the costs of telecommunication services and equipment.
RECOMMENDATION
Establish a new Command and General Staff position being called Communications Chief, with telecommunications responsibilities over all telecommunication and computer activities. Integration of these units will keep a consistent flow of time, material, and equipment that in turn will save dollars.
FINDING
Long distance services installed on landlines supporting incidents are not utilizing the FTS2001 contract.
RECOMMENDATION
Establish Designated Agency Representatives (DARs) in Boise, Idaho, during the fire season to submit orders where appropriate for long distance services utilizing the FTS2001 contract. Request hierarchy codes be established with FTS2001 in advance, and paid for with a fire Miscellaneous Object (MO) code. In using the FTS2001 contract, long distance costs would decrease to 2 ½ cents per minute.
FINDING
Personnel have been reporting to incidents with their home unit cell phones that do not have national service on them which would provide them with the capability to call within the U.S. without incurring roaming charges. These individuals must obtain an "S" number from their camp to charge the costs incurred for calls and roaming charges for the time period the cell phone was used while on the incident. All roaming charges, as well as the cost of the calls, are paid out of the incident's budget, greatly impacting local budget/financing personnel to the extent that they spend more and more time on "S" numbers instead of their own current duties.
RECOMMENDATION
During incidents, cell phones are currently procured and supplied for use by communications staff holding key positions. Individuals reporting to incidents with home unit cell phones should be denied "S" numbers to pay for the use of their cell phones and roaming charges during the incident. If their home unit allows them to take cell phones with them during incidents, then the home units would pay for calls and roaming charges from their budget. If it is determined that an individual need to have access to a cell phone, then the Incident Commander should ensure that one is procured through the GSA Federal Telecommunications Wireless Service (FTWS) contract with the proper service plan required to support the incident. Additional guidelines for accountability and demobilization would be established. Additional ordering guidelines would be established utilizing the national GSA FTWS contract under an emergency predetermined plan.
We also recommend establishing a new supply code "T" for telecommunications services and equipment, separating these goods and services from the rest of the cache items. The "T" number should include the cell/satellite phone number. Landlines should be grouped under one T number. However, each telephone number should be listed separate for accountability purposes.
FINDING
Telephone sets and accessories are occasionally removed by group members, resulting in the next arriving group needing to purchase new telephone sets and accessories to support the same incident.
RECOMMENDATION
Telephone sets and accessories should be included as part of the cache and be procured in bulk, shipped to the incident at no additional cost, and accounted for during and after the end of an incident. See suggestions on cache items below:
Telecom Equipment List for National Caches
Phone Sets - Regular (Desk Set)
Phone Sets - Speaker
Phone Sets - Conference
Phone Wire - 2/4 pair (Cat 3) 1000'/Box
Phone Wire - Satin 2 pair 1000'/Box
Computer Wire - 4 pair (Cat 5/6) 1000'/Box
Computer Wire - Satin 4 pair 1000'/Box
Computer Hubs - 6 slots
Rj11 Connectors
Rj45 Connectors
Modular end Connectors
Scotch lock Connectors (Yellow/Red)
Crimping tools for both sizes
Wire cutting tools
Wall Jacks (6/8 pair)
Equipment without a National Fire Equipment System (NFES) number should not be returned to national caches, but sent to local telecommunication shops at the forest level to be cleaned, refurbished, repaired, and kept by that shop for future incidents, or destroyed. It is not cost- effective to return them to regional and national caches.
FINDING
The purchase of long distance service, telephone sets, and accessories connected to landlines used to support incidents are obtained individually from local vendors as opposed to obtaining them from the FTS2001 contract or at bulk rate.
RECOMMENDATION
The turnaround time for telephone lines to include FTS2001 long distance service is within 4 hours during the regular 9-5 workday, to 24 hours during off-duty and weekend hours. In cases where these services are not available, DARs would be responsible for checking with a local telephone company to ensure that the government secures the most cost-effective long distance service available in the area of the incident. Telephone sets and accessories should be purchased in advance and at bulk rate to produce cost savings to the government.
FINDING
Telephone sets and other telecommunications equipment are not accounted for at the end of the incident.
RECOMMENDATION
Picture IDs and/or smart credit cards with an individual's local information should be required from anyone obtaining telecommunication items (i.e., radios, batteries, cell phones, satellite phones, radio accessories, etc.) Require individuals to sign for equipment that they receive from telecommunications. By doing so, this will provide accountability and keep equipment from being lost at the end of a team's tour.
FINDING
Based on the responses we received back from the questionnaire we sent out, more landlines are sometimes installed than necessary, particularly in situations where the Incident Commander or others not knowledgeable in telecommunications made the decisions on the number of lines to be installed.
RECOMMENDATION
Procure and use key systems when available. The use of key systems will reduce the amount of lines needed and provide greater flexibility in using the lines to support the incident.
FINDING
The "excessive" landlines that were installed also included a bank of landlines for use by personnel to make personal calls using their calling cards. Telecommunications equipment such as key systems was not used to reduce the number of lines installed. This is partly due to the lack of knowledge of their communications personnel. Lacking experience within the telecommunications field at incidents is becoming more and more apparent. Most communications personnel sent out on incidents do not have the necessary telecommunications skills required. For that reason, upgrading their skills will help to lower the costs associated in the area of telecommunications.
RECOMMENDATION
Establish a bank of logistics phones (2-5 each) that are toll-restricted. Allow personnel to use these phones with calling cards for making personal calls.
Establish a recommended number of landlines, satellite phones, and cell phones to be installed based on the type and size of an incident. Require documentation signed by the Incident Commander for exceeding recommendations. Recommendations are as follows:
LANDLINES/SATELLITE PHONES CELL PHONES
TYPE I 12-35 0-25
TYPE II 6-20 0-15
TYPE III 0-4 0-3
AREA COMMAND 10-25 0-6
FINDING No problem with satellite phones was cited. They should continue to be ordered, accounted for, and demobilized in the same manner as cell phones are under a single contract.
/s/ Joan B. Golden
JOAN B. GOLDEN
Acting Director, Information Resources Management
cc: June T Lee, Kary Mavencamp, Don J Schnee, Steve Vance, Virginia Heerwagen, Antoine L Dixon