Risk Management
Assignment Length

Before the 2000 fire season, the standard assignment for wildland firefighters was 21 days. The shift to a 14-day assignment was due, in part, to a comment in the Wildland Firefighter Safety Awareness Study (TriData 1998). In a discussion of the causes of fatigue, the report said: "Firefighter personnel often work too many consecutive hours, on too many consecutive days, and often on too many successive fires." The report went on to say that: "Data from a BIA [Bureau of Indian Affairs] study showed that the majority of injuries occurred among crews during the third week since they had left their home base" (page 5–57). The editor's attempts to locate and review the BIA study have not been successful. So this major policy shift was influenced by a study that has not been available for review.

In a study of fatigue and stress among firefighters and overhead conducted during the 2000 fire season, the 14-day assignment policy was the "problem" most often mentioned by firefighters and managers. Many argued that they should be able to use judgment to determine when to terminate an assignment. Crew leaders and overhead team personnel felt they were in the best position to judge the effectiveness of their respective groups. The 14-day policy should be evaluated in several areas, including: health, safety, and performance; logistics; social and family effects; and the effects on the firefighter's morale. The analysis should consider single compared to multiple assignments, crew types, overhead, and contractors.

Health, Safety, and Performance—Health issues can be evaluated with medical records and measures of immune function. Safety during extended operations can be evaluated with an injury surveillance system. The literature on physical performance in extended operations supports the ability of fit and motivated workers to perform for prolonged periods when they receive adequate rest and nutrition. A type 1 crew should be able to complete a 21-day assignment without adverse effects, while some type 2 crews may lack the training to complete a 21-day assignment without undue fatigue. When multiple assignments are involved, several options are possible: allow crew leaders to shorten the assignment to adjust to the crew condition and the difficulty of assignment; and/or develop a schedule that shortens the length of assignments as the season progresses.

Assignments longer than 14 days may have a greater physical impact on firefighters than on overhead personnel.

Logistical Issues—Travel, incident command team overlap, cooperator regulations, and other issues are affected by the 14-day policy. Increased travel increases the risk to health and safety. The period when incident command teams overlap increases with shorter assignments. Some State agencies have regulations that differ from Federal policies. The 14-day policy increases the need for additional firefighting personnel.

Social/Family Issues—Aside from health or performance issues, the 14-day assignment may encourage more participation by the "militia" (regular employees who volunteer for fire duty). Many employees appreciate the opportunity to get home more frequently.

Paycheck Issues—Pay incentives that encourage fatigued firefighters to work long shifts or assignments should be eliminated. Policy changes must be revenue neutral if firefighters are to maintain their morale.

Firefighters' performance depends on their level of fitness, motivation, nutrition, previous assignments, acclimatization, hydration, immune function, and other factors. No single formula will account for the complex interactions among these factors. One approach would be assignment limits (such as 21 days for type 1 crews and 14 days for type 2 crews) tempered by judgment and adjusted for conditions and back-to-back assignments. The impact of fatigue during the 2000 season was tempered by a change in the mission, brought on by the immensity of the task. The intensity of the fires often precluded direct attack, so firefighters were more likely to pace themselves. The task became a marathon rather than a sprint.