Technical Implementation Guide 1710-16

Air Force Fire Emergency Services Technical Implementation Guide 1710-16

Technical Implementation Guide 1710-16 For

NFPA 1710, Standard for Organization and Deployment of Fire Suppression Operations, Emergency Medical Operations, and Special Operations to the

Public by Career Fire Departments

Date Published: January 2017


Preface

In accordance with established policies and procedures, AFCEC/CXF conducted a comprehensive line item review of NFPA 1710, Standard for Organization and Deployment of Fire Suppression Operations, Emergency Medical Operations, and Special Operations to the Public by Career Fire Departments (2016 Edition). This Technical Implementation Guide (TIG) provides clarification and deviation approvals authorized by the Authority Having Jurisdiction, Director of Civil Engineers. Line items not addressed in this TIG are implemented as written. This TIG does not apply for use during contingency, humanitarian relief, or wartime operations. Consult War Mobilizations Plan (WMP) 1, Annex S, for staffing and vehicle requirements.

The left hand column lists the NFPA line items which correspond to a clarification or deviation on the right hand column.

All DET Fire Emergency Services functionals have coordinated on this TIG. Correspondence in this regard is on file at AFCEC/CXF, Tyndall AFB FL.

Digitally signed by GREEN.TIMOTHY.S.1135082844 DN: c=US, o=U.S. Government, ou=DoD, ou=PKI, ou=USAF, cn=GREEN.TIMOTHY.S.1135082844

Y.S.1135082844 Date: 2017.02.21 08:01:08 -05'00'

TIMOTHY S. GREEN, Maj Gen, USAF Director of Civil Engineers DCS/Logistics, Engineering & Force Protection

Attachment: A4C Interim NFPA Standards Implementation Memo

GREEN.TIMOTH


NFPA 1710, 2016 Edition Air Force Implementation Matrix Chapter 1 – Administration Adopt as written with the following clarifications. 1.1* Scope. This Technical Implementation Guide (TIG) provides Air Force

clarifications or deviations to National Fire Protection Association (NFPA) Standard 1710, Organization and Deployment of Fire Suppression Operations, Emergency Medical Operations, and Special Operations to the Public by Career Fire Departments (2016 Edition).

2.3.2 Other Publications. Clarification: Added the following references: 2.3.2.1 Department of Defense Instruction (DoDI) 6055.06 Fire and Emergency Services Program 2.3.2.2 Air Force Instruction (AFI) 32-2001, The Fire Emergency Services Program 2.3.2.3 Allowance Source Code (ASC) 010, Vehicle Fleet (Registered) All MAJCOM Common 2.3.2.4 Air Force Manpower Standard, Fire Emergency Services Flight 44EF00 2.3.2.5 ANGMS 44EF00 2.3.2.6 Applicable Air Force Technical Orders 2.3.2.7 USAF Fire Emergency Services Vehicle Validation and Realignment Plan (VVRP) 2.3.2.8 Air Force Fire Emergency Services Structural Response Guide

3.2.2* Authority Having Jurisdiction (AHJ).

Clarification: The Director of Civil Engineers is the authority having jurisdiction (AHJ) for Air Force FES clarification and deviations.

3.3.2.1* Automatic Aid. Clarification: Automatic Aid as defined in DoDI 6055.06 3.3.2.2 Mutual Aid. Clarification: Mutual Aid as defined in DoDI 6055.06 3.3.4* Aircraft Rescue and Fire-Fighting (ARFF) Vehicle.

Clarification: FES Vehicle Validation and Realignment Plan authorizes the 500-gallon P-34 Rapid Intervention Vehicle as a suitable supplement to the ARFF apparatus fleet.

3.3.53.1 Alarm Answering Time.

Clarification: Component of Dispatch Time defined in DoDI 6055.06

3.3.53.2 Alarm Handling Time.

Clarification: Component of Dispatch Time defined in DoDI 6055.06. Alarm Handling Time and Dispatch Time differ in their criteria. Where NFPA’s “Alarm Handling Time” ends at the beginning of the transmittal of response information to responders, DoDI 6055.06’s “Dispatch Time” ends after the dispatch information is transmitted and applicable units are notified.

3.3.53.3 Alarm Processing Time.


3.3.53.4 Alarm Transfer Time.



3.3.53.6* Total Response Time.

Clarification: Aggregate Response Time as defined by DoDI 6055.06.

4.1 Fire Department Organizational Statement.

Clarification: Revise organizational statement IAW with NFPA 1710 as required. The Fire Department's organizational statement is governed under NFPA 1500, AFPD 32-20, and AFI 32-2001.

4.1.2* Clarification: Response Times and Levels of Service for FES Operations are outlined in DoDI 6055.06 and AFI 32-2001.

4.1.2.1. (1-7) Clarification: Aggregate Response Time requirements as defined in DoDI 6055.06 and AFI 32-2001.

4.1.2.3.1 Clarification: Aggregate Response Time requirements as defined in DoDI 6055.06 and AFI 32-2001.

4.1.2.3.3 Clarification: Aggregate Response Time requirements as defined in DoDI 6055.06 and AFI 32-2001.

4.1.2.3.3.1 Clarification: Aggregate Response Time requirements as defined in DoDI 6055.06 and AFI 32-2001.

4.1.2.4 Clarification: Aggregate Response Time requirements as defined in DoDI 6055.06 and AFI 32-2001.

4.3 Emergency Medical Services.

Clarification: This covers all areas in NFPA 1710 relating to EMS provided to the base population by AF Fire Emergency Services organizations. The AHJ for EMS is the Air Force Surgeon General and the installation senior medical officer regardless of who provides the service.

4.8.1* Clarification: Ensure agreements are IAW AFI 32-2001, DoDI 6055.06 and AFI 10-802.

5.2.1.1 Clarification: Air Force staffing requirements for emergency response incidents are IAW DoDI 6055.06, AFI 32-2001 and AFMS 44EF00. Vehicle authorizations are identified in ASC 010. Equipment authorizations are identified in ASC 490.

5.2.2* Clarification: Air Force suppression capability is based on historical risk profiles staffing requirements and response criteria for emergency response incidents are IAW DoDI 6055.06, AFI 32-2001, AFMS 44EF00 and Structural Response Guide.

5.2.2.2.1* Clarification: Levels of Service as defined in DoDI 6055.06, AFI 32-2001 and AFMS 44EF00.

5.2.2.2.5* Clarification: Levels of Service as defined in DoDI 6055.06, AFI 32-2001 and AFMS 44EF00.

5.2.3 Clarification: Levels of Service as defined in DoDI 6055.06, AFI 32-2001 and AFMS 44EF00.

5.2.3.1.1 and 5.2.3.1.2 Clarification: Levels of Service as defined in DoDI 6055.06, AFI 32-2001 and AFMS 44EF00.

5.2.3.1.2.1 Clarification: Levels of Service as defined in DoDI 6055.06, AFI 32-2001 and AFMS 44EF00.

5.2.3.2.1 and 5.2.3.2.2 Clarification: Levels of Service as defined in DoDI 6055.06, AFI 32-2001 and AFMS 44EF00.

5.2.3.2.2.1 Clarification: Levels of Service as defined in DoDI 6055.06, AFI 32-2001 and AFMS 44EF00.


5.2.3.3.2 Clarification: Levels of Service as defined in

DoDI 6055.06, AFI 32-2001 and AFMS 44EF00. 5.2.3.4.1 and 5.2.3.4.2 Clarification: Levels of Service as defined in

DoDI 6055.06, AFI 32-2001 and AFMS 44EF00. 5.2.4.1.1* (1-8) Deviation: IAW AFMS 44EF00, AF FES organizations are not

allocated manpower to internally achieve single-family dwelling capability on initial full alarm assignments. AF installation design criteria and public education reduces the potential for catastrophic incidents as indicated by historical response data. Incident commanders allocate resources to manage incidents based on local risk factors. Installations with this requirement should consider developing automatic aid procedures with local jurisdictions to supplement manpower allocated by AFMS 44EF00. (8) Clarification: NFPA has provided clarification to AFCEC/CXF that the use of “IRIC” in line (8) is contradictory to NFPA 1500 language.

5.2.4.1.3 Clarification: NFPA has provided clarification to AFCEC/CXF that the use of “IRIC” in this paragraph is contradictory to NFPA 1500 language.

5.2.4.2.1* (1-9) Deviation: IAW AFMS 44EF00, AF FES organizations are not allocated manpower to internally achieve open-air shopping center capability on initial full alarm assignments. AF installation design criteria and public education reduces the potential for catastrophic incidents as indicated by historical response data. Incident commanders allocate resources to manage incidents based on local risk factors. Installations with this requirement should consider developing automatic aid procedures with local jurisdictions to supplement manpower allocated by AFMS 44EF00.

5.2.4.3.1 (1-9) Deviation: IAW AFMS 44EF00, AF FES organizations are not allocated manpower to internally achieve three-story garden style apartment capability on initial full alarm assignments. AF installation design criteria and public education reduces the potential for catastrophic incidents as indicated by historical response data. Incident commanders allocate resources to manage incidents based on local risk factors. Installations with this requirement should consider developing automatic aid procedures with local jurisdictions to supplement manpower allocated by AFMS 44EF00.

5.2.4.4.1 (1-17) Deviation: IAW AFMS 44EF00, AF FES organizations are not allocated manpower to internally achieve high-rise capability on initial full alarm assignments. AF installation design criteria and public education reduces the potential for catastrophic incidents as indicated by historical response data. Incident commanders allocate resources to manage incidents based on local risk factors. Installations with this requirement should consider developing automatic aid procedures with local jurisdictions to supplement manpower allocated by AFMS 44EF00.


5.3* – 5.3.4.4 Clarification: FES roles in EMS are determined through Memorandum of Agreement and approved by the Air Force Surgeon General.

5.5.2 Clarification: Levels of Service as defined in DoDI 6055.06, AFI 32-2001 and AFMS 44EF00.

5.5.4.3 and 5.5.4.4 Clarification: Levels of Service and Aggregate Response Time requirements as defined in DoDI 6055.06 and AFI 32-2001.

5.5.5.1 and 5.5.5.2 Clarification: ARFF Levels of Service defined in IAW DoDI 6055.06, AFI 32-2001 and AFMS 44EF00.

5.5.5.3 Clarification: EMS Levels of Service defined in IAW DoDI 6055.06 and AFI 32-2001.

5.7.2.2 Clarification: Capabilities and roles must be determined IAW AFI 32-7064 and the Installation Wildland Fire Management Plan. Training and certification will be accomplished IAW NWCG requirements.

5.7.5.2 Clarification: Levels of Service as defined in DoDI 6055.06, AFI 32-2001 and AFMS 44EF00.

5.7.7.1 and 5.7.7.2 Clarification: Levels of Service and Aggregate Response Time requirements as defined in DoDI 6055.06 and AFI 32-2001.

6.3.2 Clarification: Competencies, local risks and effectiveness of response forces are analyzed and reported through the Fire Emergency Services Self-Assessment Program (FESAP) IAW AFI 32-2001.

AIR FORCE FIRE EMERGENCY SERVICES

STRUCTURAL RESPONSE

GUIDE

February 2017

Air Force Fire Emergency Services Structural Response Guide 1710-16

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Table of Contents

Section 1 – Introduction

1.1. Purpose 1.2. Background 1.3. Discussion 1.4. Definitions

Section 2 – Fire Development in Structures

2.1. Fire Development in Compartments 2.2. ASTM Standard Time-Temperature Curve 2.3. Flashover and Factors Influencing Flashover 2.4. Flashover in Differing Occupancies 2.5. Flashover in Dwellings

Section 3 - Fire Response Districts and Fire Demand Zones

3.1. Fire Response Districts (FRDs) 3.2. Fire Demand Zones (FDZs) 3.3. Factors Influencing FDZs 3.4. Sample FRDs 3.5. Sample FDZs

Section 4 – Aggregate Response Time (ART)

4.1. Response Objectives 4.2. Authority Having Jurisdiction (AHJ) Authorities 4.3. USAF AHJ 4.4. Aggregate Response Time 4.5. Optimum Level of Service Response Criteria 4.6. Fire Stations in Main Cantonment Areas 4.7. Remote or Outlying Facilities

Section 5 – Capabilities

5.1. Staffing and Manpower Criteria 5.2. Fire Vehicle Criteria 5.3. Relationship of Staffing and Vehicles to Standard of Cover (SOC) 5.4. Emergency Response Capability (ERC) 5.5. Levels of Service and Rules of Engagement


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Figures

Figure 1 – Standard Time and Temperature Curve Figure 2 – Time to Flashover in Various Occupancies Figure 3 – Sample Fire Response Districts Figure 4 – Sample Fire Demand Zones Figure 5 – Elements of Response Time

Tables

Table 1 – Occupancy Classification Definitions for Unsprinklered Facilities Table 2 – Structural Fire Service Delivery Comparison Table 3 – ARTs for Remote or Outlying Facilities Table 4 – Fireground Tasks and Staffing

Supersedes: This edition of the Air Force Fire Emergency Services Structural Response Guide supersedes all previous editions.


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SECTION 1 – INTRODUCTION

1.1. Purpose. The purpose of this guide is to integrate Air Force (AF) and Department of Defense (DoD) requirements relative to structural firefighting operations and further educate our career field. This guide provides a template for base-level senior fire officials (SFOs) in the Fire Emergency Services (FES) Flight to use when conducting assessments and to communicate fire protection capabilities to their Base Civil Engineer (BCE) and wing leaders. It provides a foundation to senior leaders to aid in assessing fire risk. 1.2. Background. DoD requirements for structural fire fighting operations are contained in DoDI 6055.06, Department of Defense Fire and Emergency Services Program. This instruction recognizes both mandatory standards, such as those promulgated by the Department of Labor’s Occupational Safety and Health Administration, and non-mandatory consensus standards such as National Fire Protection Association (NFPA) standards. NFPA 1710, Standard for the

Organization and Deployment of Fire Suppression Operations, Emergency Medical Operations,

and Special Operations to the Public by Career Fire Departments, is a consensus standard pertaining to structural fire fighting operations. The International City Management Association (ICMA) publishes a third category of relevant standards known as industry standards.

1.2.1. The AF has issued the following standards to implement DoDI 6055.06; AF Instruction 32- 2001, Fire Emergency Services Program; AF Technical Implementation Guide (TIG) 1710; Allowance Source Code (ASC) 010, Vehicle Fleet (Registered) All MAJCOM Common; and Air Force Manpower Standard (AFMS) 44EF00, Fire Emergency Services Flight.

1.3. Discussion. A thorough understanding of structural response criteria will enable SFOs to effectively allocate available resources and to provide senior leaders accurate assessments relative to structural fire fighting capabilities and risks.

1.4. Definitions.

1.4.1. Company - A group of FES members: (1) under the direct supervision of a fire officer; (2) trained and equipped to perform assigned tasks; (3) usually organized and identified as engine companies, ladder companies, rescue companies, ARFF companies, squad companies, or multifunctional companies; and (4) operating with one piece of fire apparatus except where multiple apparatus are assigned that are dispatched and arrive together, continuously operate together, and are managed by a single company officer; (5) arriving at the incident scene on fire apparatus.

1.4.1.1. Engine Company - A fire company that pumps/delivers water and performs basic firefighting functions at fires, including search and rescue.

1.4.1.2. Ladder/Truck Company (i.e., Aerial Apparatus or Quint) - A fire company that provides a variety of services associated with truck work, such as forcible entry, ventilation, search and rescue, aerial operations for water delivery, utility control, scene illumination, overhaul, and salvage work.

1.4.1.3. Rescue Company - A fire company that provides forcible entry, search and rescue, utility control, technical rescue, and emergency medical services.


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1.4.1.4. Aircraft Rescue and Fire Fighting (ARFF) Company - A company that transports a specialized crew with specialized fire fighting and rescue equipment prepared to combat fires in or around aircraft.

1.4.2. Demand for Fire Service - The “demand” represents the fire fighting resources required to control the event; such a demand is generally time-dependent in the case of a fire. For example:

1.4.2.1. A fire in an unsprinklered single-family residence may only require a single pumper, 4 firefighters (FFs) and a 100 gpm water supply at 7 minutes if the fire is contained but could require three pumpers, 13 FFs and a 1,000 gpm water supply if the fire grows quickly.

1.4.2.2. In general, the type of occupancy, the amount and the continuity of combustible contents and interior finish, the ceiling/roof height, the degree and effectiveness of compartmentalization, and the presence or absence of sprinkler protection will all influence the fire’s impact on demand for fire services. High monetary values or critical missions at risk could result in a higher demand for service than a comparable facility might justify.

1.4.3. Immediately Dangerous to Life and Health (IDLH) - IDLH is defined in OSHA’s 29 CFR 1910.120, as “an atmosphere that poses an immediate threat to life, would cause irreversible adverse health effects, or would impair an individual's ability to escape from a dangerous atmosphere”.

1.4.4. Flashover - Flashover is the transition from localized burning of a combustible article (e.g., a piece of furniture) to near-simultaneous ignition of all combustible materials in a compartment. The heated products of combustion from a burning object rise to the compartment’s ceiling and spread laterally to create a hot layer of gas. When that hot layer is constrained by walls and the depth of the layer increases, those hot gases radiate heat to all directly-exposed surfaces in the room. When the ceiling temperatures reach 1,100°F, the radiated heat is sufficient to cause auto- ignition of essentially all exposed combustibles in the room.

1.4.5. Aggregate Response Times (ART), IAW DoDI 6055.06.

1.4.5.1. Dispatch Time: The point or receipt of the emergency alarm at the public safety answering point to the point where sufficient information is known to the dispatcher and applicable units are notified of the emergency. 1.4.5.2. Turnout Time: The time beginning when units are notified of the emergency to the beginning point of travel.

1.4.5.3. Travel Time: The time that begins when units are enroute to the emergency incident and ends when units arrive at the scene. 1.4.5.4. First Arriving Company: One company arriving within 7 minutes ART 90% of the time with a staff of four firefighters. Fractile response rate indicates the percentage of responses that are equal to or less than the ART. When calculating, do not “average” response times.


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1.4.5.5. Initial Full Alarm Assignment: Three companies arriving within 12 minutes 90% of the time with a staff of 13 firefighters. When calculating, do not “average” response times Fractile response rate indicates the percentage of responses that are equal to or less than the ART.

SECTION 2 – FIRE DEVELOPMENT IN STRUCTURES

2.1. Fire Development in Compartments. Assuming a continuum of combustible materials, a fire will generally grow in size as time progresses. A fire’s rate of growth is influenced by the amount and configuration of available combustible materials and the availability of oxygen. As a fire progresses, gas (air and products of combustion) temperatures at the ceiling/roof in the fire area increase at a rate dependent upon the rate of burning and the compartment’s configuration. That “compartment” could be as small as a bedroom or as large as an open factory.

2.2. Standard Time-Temperature Curve. The international fire community uses “standard” time-temperature curves when testing building components for fire resistance ratings. In the U.S., a Standard Time-Temperature Curve developed by the NFPA was adopted by the American Society of Testing and Materials (ASTM) International. Following its adoption as a national standard, the National Institute of Standards and Technology (NIST) conducted a series of full- scale fire tests which confirmed that the Standard Time-Temperature curve was representative of fully-developed fires in a number of occupancies having varying fuel loads.

2.2.1. Figure 1 below is the standard time-temperature curve recognized in the U.S. Other countries have adopted their own versions of a standard time-temperature curve, but all of those curves are essentially identical to the curve in Figure 1 during the first two hours of the fire test.

Figure 1 – Standard Time and Temperature Curve


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2.3. Flashover and Factors Influencing Flashover – A phenomenon known as “flashover” occurs when the ceiling gases reach a temperature of approximately 1100°F. At that temperature, the heat radiated from the gases at the ceiling of a compartment will ignite essentially all combustibles in the room. This is relevant because at this point, an unprotected person would not be expected to survive.

2.3.1. The time-to-flashover in unsprinklered occupancies is dependent upon ceiling heights, combustible fuel loading and configuration, degree of compartmentalization, ventilation and other factors. In open areas, the heated air will spread below the ceiling/roof until the heated air reaches a barrier which causes the heated air to develop into a thicker layer which can then radiate energy to objects on the floor of the area. Because it takes longer to develop the thick layer of heated air, in an open area flashover is delayed and may not even occur if the open area is extensive.

2.3.2. In open areas with high ceilings/roofs, the heated gases in the fire plume will be cooled by ambient air drawn into the plume, and those mixed gases reaching the ceiling/roof will have lower temperatures than in a confined space fire having the same rate of combustion. The combination of open area and high ceiling/roof heights significantly delay, or typically preclude, the transition to flashover.

2.4. Flashover in Differing Occupancies – Figure 2 compares fire growth curves and time-to- flashover for various occupancies.

Figure 2 – Time to Flashover in Various Occupancies

TIME-TO-FLASHOVER IN VARIOUS OCCUPANCIES

E – Standard Time-Temperature Curve

D - Severe

FLASHOVER C – Moderately Severe

B - Moderate

A - Light

0

0 10 50 100 110 120

Time (Minutes)

Tem

per

atu

re (

°F)


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2.4.1. There are computer fire models that can accurately predict temperature growth for specific fuel packages and compartment configurations, but the cost of the software and hardware for running such models is significant. Likewise, collecting and inputting the data can be very time- intensive. The qualitative information in Table 1 is a reasonable correlation to the fire temperature profiles A through E in Figure 2.

Table 1 - Occupancy Classification Definitions for Unsprinklered Facilities

(1) Temperature Curve A (Light)

NFPA Occupancy Classifications AF Example

Well-arranged office, metal furniture, noncombustible building Welding areas containing slight combustibles CE Shops Noncombustible powerhouse Noncombustible buildings, slight amount of combustible occupancy Labs and most R&D operations

Aircraft maintenance & overhaul depots

(2) Temperature Curve B (Moderate)


Cotton and waste paper storage (baled) and well-arranged, noncombustible buildings Paper making processes, noncombustible building Noncombustible institutional buildings with combustible occupancy Admin/Offices: Labs & R&D ops with

<50 gals of flammable liquids outside of storage cabinets/rooms

(3) Temperature Curve C (Moderately Severe)


Well-arranged combustible storage, e.g. wooden patterns, noncombustible buildings Machine shop having noncombustible floors

(4) Temperature Curve D (Severe)


Manufacturing areas, combustible products, noncombustible buildings Warehouses Congested combustible storage areas, noncombustible buildings

(5) Temperature Curve E (Standard Fire Exposure-Severe)


Flammable liquids Woodworking areas Carpenter Shop Office, combustible furniture and buildings Paper working, printing, etc. Printing Plants Furniture manufacturing and finishing Machine shops that have combustible floors Residential occupancies (inserted by USAF) MFH, VOQ/VAQ, TLF, Dorms

2.5. Flashover in Dwellings – It is generally accepted that flashover in an unsprinklered single- family residence will typically occur approximately 7½-10 minutes after burning is established (a small wastebasket-sized fire). Referring to Figure 2, the time-temperature curve for an unsprinklered residential occupancy would fall in between profiles D and E.


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SECTION 3 – FIRE RESPONSE DISTRICTS AND FIRE DEMAND ZONES

3.1. Fire Response Districts (FRDs) – A FRD is the geographic area of first-run responsibility for a particular fire station. The concept of placing resources in a location to effect required first arriving apparatus response times is known as “Distribution.” Distribution goals should match DoD and AF requirements. 3.1.1. At an optimal level of service, a structural apparatus dispatched from the station should be capable of arriving at any point within its FRD within the target response time for the first-arriving apparatus. The full alarm complement, which may cross over FRDs is known as “Concentration”. Concentration is the ability to get the effective response force in place to perform all critical tasks to mitigate emergencies within the DoD and AF requirements. 3.1.2. To determine the proper distribution and concentration of resources, departments should evaluate past response performance, critical task analyses and a community risk assessment. Numerous factors, including accessibility (security and travel impairments), geographical features such as ravines, rivers or railways and time of day may impact how FRDs are configured.

3.1.3. Because fires in unsprinklered structures generally grow in size as time passes, the earlier the fire suppression activity begins, the smaller the fire fighting challenge and the less resulting damage. However, reducing target response times has a very real cost in terms of additional fire stations, vehicles and manpower. Staffing vehicles and fire stations has a definite recurring annual cost which must be compared to the probabilities of fires and fire losses in those response areas.

3.1.4. For structural fire responses, the target response time should allow firefighters to apply water onto the fire before flashover occurs. But it is important to understand that for sprinklered facilities, and for many occupancies (Table 1) and types of construction (open areas and high ceilings/roofs), the time-to-flashover (Figure 2) will be significantly longer than the time-to- flashover in unsprinklered single-family residential occupancies.

3.2. Fire Demand Zones (FDZ) – DoDI 6055.06 defines FDZs as small areas that represent a single demand for fire service (i.e., the time-dependent amount of fire fighting resources required to suppress a fire). It might be more appropriate to visualize an FDZ as an area that has a common demand for fire fighting services rather than a random geographic area. For example, an area may have a predominant risk type with ancillary facilities interspersed throughout the area. The demand for service should be based on the predominant risk in a specific area unless a target hazard or High/Key risk is identified in the zone.

3.2.1. Risks in an FDZ can be consistent, such as a community of unsprinklered single-family residences served by a fire station, or an FDZ may contain diverse occupancies with similar fire risk.

3.2.2. If the fire fighting requirements of a particular FDZ exceed the resources of that FRD, fire vehicles from other FRDs (including mutual aid partners) may be utilized to meet the full fire fighting demand of that particular FDZ to assemble an effective response force.


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3.3. Factors Influencing FDZs – In general, the fire demand is determined by the presence or absence of sprinkler protection; the occupancy classification and the nature of the contents; and the construction features. On a DoD or AF installation, the values at risk and the mission criticality should also be considered when determining the fire demand.

3.4. Sample Fire Response Districts. The fire response districts are colored areas that indicate the first due assignment and are based on geographic limitations. There may be facilities or areas in a fire response district that exceed the performance targets. Facilities beyond the response targets (for first-arriving pumper or for the initial full alarm assignment) should be analyzed to determine if they account for a significant demand for service in a given year. These facilities may be addressed as remote and outlying facilities discussed in paragraph 4.7.

Figure 3 – Sample Fire Response Districts

3.5. Sample Fire Demand Zones – An AF installation can be divided into both FRDs and FDZ’s. The fire demand zones are the numbered areas that are used to assess risk, determine response resources, and to analyze performance to a specific area or occupancy group. These fire demand zones should be used to assess risk, establish/validate a standard of cover, measure performance, and inform the governing body on FES capability.


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Figure 4 – Sample Fire Demand Zones


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SECTION 4 – AGGREGATE RESPONSE TIME

4.1. Response Objectives – NFPA, ICMA, DoD and USAF all recognize the common objective of being able to apply agent to the fire prior to flashover. The DoD uses the response objectives in DoDI 6055.06. The NFPA criterion presented is for educational and comparison purposes.

TABLE 2 – Structural Fire Service Delivery Comparison

2,000 SF Structural Fire Service Delivery Comparison (MM:SS)

NFPA 1710 DoDI 6055.06

Alarm Handling Time Dispatch Time

Alarm Answering Time (95%) 0:15 1:00

Alarm Processing Time 1:04

Turnout Time 1:20 Turnout Time 1:00

Travel Time Travel Time

First Arriving 4:00 First Arriving 5:00

Initial Full Alarm 8:00 Initial Full Alarm 10:00

Total Response Time Aggregate

First Arriving 6:39 First Arriving 7:00

Initial Full Alarm 10:39 Initial Full Alarm 12:00

***90% Threshold unless specified differently***

4.1.1. NFPA 1710’s response objectives are based upon intervening in a specific fire scenario prior to flashover. The standard acknowledges that the basis for its response objectives is a fire in an unsprinklered 2,000 SF, two-story single-family home without a basement and having no exposures.


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4.1.1.1. As discussed in Section 2, the extensive presence of combustibles and the construction features in unsprinklered residential occupancies typically result in flashover in the 7½-10 minute timeframe. For cities and most civilian communities, NFPA’s response objectives are logical because unsprinklered residential occupancies (homes, hotels, motels, hospitals, etc.) are typically distributed throughout the entire city/community.

4.2. Authority Having Jurisdiction (AHJ) Authorities – NFPA 1710 also recognizes that the real world is not composed solely of unsprinklered homes requiring very short travel times of 4-8 minutes. In its Annex A, NFPA 1710 provides the AHJ the flexibility to develop response objectives for their environments:

4.2.1. “The AHJ generally has the responsibility to determine the following:

4.2.1.1. (1) Scope and level of service provided by the fire department

4.2.1.2. (2) Necessary level of funding

4.2.1.3. (3) Necessary level of personnel and resources, including facilities”

4.2.2. “The governing body has the right and should assert its authority to set the specific services and the limits of the services the fire department will provide.”

4.2.3. “Additional service delivery objectives should be established by the AHJ for occupancies other than those within the standard for benchmark single-family dwellings.”

4.2.4. “The factors that should be included in the AHJ’s risk assessment process include adopted building codes, required fire/life safety related engineering controls, accepted service delivery performance objectives, complexity of facilities, and occupancy hazards (low, medium, and high) within the jurisdiction.”

4.2.5. “The AHJ’s response objectives should be established based upon numerous factors such as the circumstances affecting response personnel, adopted building codes, required fire/life safety-related engineering controls, accepted turnout/travel times, complexity of facilities, and occupancy hazards within the jurisdiction.”

4.3. USAF AHJ – The AHJ for fire-related issues in the USAF is the Director of Civil Engineers (CE), HQ USAF/A4C. The AF CE, through AFI, technical implementation guides, policies and directives/guidance, determines those elements identified in paragraphs 4.2.1. through 4.2.5.

4.3.1. Paragraph 4.3 is consistent with DoDI 6055.06’s definition of AHJ – “The organization, office, or individual responsible, designated by the DoD Component for approving equipment, materials, and procedures for DoD Component fire departments.”

4.4. Aggregate Response Time – DoDI 6055.06 defines aggregate response time (ART) as the total of dispatch time, turnout time, and travel time. This is the elapsed time from the receipt of the emergency alarm to when the units arrive on the scene.


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4.4.1. The DoDI provides OLS objectives of a 7-minute ART for the first-arriving structural company and a 12-minute ART for the remainder of the initial full alarm assignment, both with 90% performance goals. These objectives are consistent with NFPA 1710’s objectives associated with an unsprinklered residential fire scenario.

4.4.2. Figure 4 illustrates the relationship between the elements of response time and fire growth in a residential occupancy (a severe fire growth characteristic). This chart reflects dispatch time and turnout goals of 1-minute intervals and a travel time of 5-minutes. This allows the first- arriving company the opportunity to initiating fire suppression actions prior to flashover in an unsprinklered residential occupancy.

Figure 5 – Elements of Response Time

4.4.3. There are two important data points in this chart:

4.4.3.1. This fire growth rate is essentially the worst-case scenario; occupancies other than residential dwellings will generally have slower temperature development curves.

4.4.3.2. In sprinklered structures, sprinklers will suppress (or extinguish) the fire and preclude ceiling temperatures from reaching flashover (1100°F), which negates the criticality of a 5-minute travel time.

4.5. OLS Response Criteria – The DoDI structural fire response objectives are consistent with NFPA 1710 objectives for an unsprinklered residential occupancy. The AF implements the DoDI criteria for an optimum level of service (OLS). However, the AF also recognizes that AF installations are substantially different from a civilian community in many significant ways:


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4.5.1. In MFH and Privatized MFH (PH), there are numerous factors which differentiate AF residential fire risks from most residential risks in civilian communities. The AF has contracts with PH developers that require the PH contractor to fully comply with residential building codes, life-safety codes and property maintenance standards which preclude AF residential properties from deteriorating to the norm in most large cities.

4.5.1.1. In MFH, PH contractors typically provide electrical and heating systems maintenance by qualified technicians. Residents receive information on safety in all activities, including reoccurring fire safety articles in local media and public fire safety campaigns. 4.5.2. A high percentage of facilities on an AF installation are sprinklered, and the probability of flashover is extremely low in such facilities. For at least the last twenty-five years, DoD and AF standards have required sprinkler protection in essentially any meaningful building. These are the “fire/life safety-related engineering controls” mentioned previously which warrant response objectives different than NFPA 1710’s objectives.

4.5.3. In non-residential facilities, occupancy processes and hazards on AF installations are rigorously controlled by a system of regulations, instructions and mandatory inspections. The AF has strong oversight mechanisms including fire prevention, safety, and IG inspections that enforce the strict application of those regulations and instructions.

4.5.4. The AF has rigorous FES professional requirements which include a strictly-enforced certification program, mandatory recurring technical training and a specialized credentialing program. The local FES departments are constantly evaluated via self-assessments, by Wing Inspection Team member assessments and MAJCOM/IG inspections. These programs are among “the circumstances affecting response personnel” which warrant AF response objectives which differ from civilian community objectives.

4.5.5. Because it is an issue of life safety, AF installations should retain the OLS objective of a 7- minute initial response ART for unsprinklered residential occupancies, including MFH/PH, billeting, TLFs and mobile home parks.

4.6. Fire Stations in Main Base Cantonment Areas. AF fire stations should also be located to support OLS response criteria for major accumulations of buildings, including main base cantonment areas. However, when staffing falls to a reduced level of service (RLS) in main base cantonment areas, management should consider reallocating resources to high demand areas and overtime isn’t necessarily required to fill all of the positions associated with OLS.

4.6.1. For the purpose of structural responses, facilities that are beyond the 7-minute/12-minute ARTs can be classified as remote or outlying facilities. This definition enables an AF installation to apply data driven assessments of risks, costs, and benefits. This standard recognizes that some facilities may be sited remotely for safety or security reasons, including security requirements that are specifically intended to restrict vehicle access.

4.7. Remote or Outlying Facilities. Recognizing that non-residential occupancies and sprinklered facilities do not require the 7-minute/12-minute ARTs associated with unsprinklered residences, the AF has adopted the guidelines specified in Table 3 for remote or outlying facilities.


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1st Arriving Vehicle (in Minutes) Required Follow-on Vehicles (in Minutes)

Noncombustible CombustibleNoncombustibleCombustibleNoncombustible Combustible

Residential ResidentialSchoolsSchoolsHealth Care –

Health Care –

Health Care –AmbulatoryHealth Care –Ambulatory All Others All Others

Sprinklered 12 10 12 10 12

Unsprinklered 10 7 10 7 7

Sprinklered 20 15 18 12 20

Unsprinklered 12 10 12 10 10

7 7 10 8

Noncombustible 20 20 25 25

Combustible 14 14 20 20

Noncombustible Combustible

20 14

20 14

25 20

25 20

Table 3 – ARTs for Remote or Outlying Facilities

4.7.1. For remote or outlying facilities outside the travel times in Table 2, a risk assessment must be accomplished to identify the potential impact of a delayed arrival. Such risk assessments must consider, as a minimum, occupancy classification, type of construction, installed fire protection systems, nature of contents, value at risk, mission criticality, life safety, water supplies, mutual aid, and other relevant factors. Facilities having travel times in excess of Table 2 do not necessarily require additional resources (vehicles, staffing, or fire stations). A fact-based risk assessment must be accomplished to determine whether alternative measures can be implemented to reduce the risk to an acceptable level vice incurring additional recurring expenses for FES resources.

SECTION 5 – CAPABILITIES

5.1. Staffing and Manpower Criteria. The foundation for AF peacetime FES staffing and standards of emergency response coverage requirements are based on DoDI 6055.06. AF FES staffing requirements are established in AFI 32-2001 and the task-based AFMS 44EF00. In addition, the AF has approved positive variances that take into consideration unique mission requirements and base configurations. The AFMS 44EF00 application is accomplished by the local Manpower and Organization Office and validated by the MAJCOM Fire Protection Office (FPO). The Fire Chief and MAJCOM FPOs should review that data annually for currency. Application of the AFMS should be maintained as an official record on file at both the fire department and MAJCOM FPOs.

5.1.1. AFMS 44EF00 establishes the Optimum Level of Service (OLS) to support structural fire fighting missions at 13 firefighters. OLS is the capability to accomplish all tasks required to manage a typical structural incident. FES personnel on the fireground may be multi-tasked in order to accomplish the incident tasks identified in NFPA 1710. For example: The Incident Commander may serve as the initial Incident Safety Officer and the second engine company may conduct ventilation or initial rapid intervention crew tasks. The following list of positions and capabilities shall be considered at each FES event:

Type of Construction

Type of Occupancy


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Table 4 – Fireground Tasks and Staffing

Fireground Task Being Performed Requirement Incident Commander 1 Firefighter Rapid Intervention Team (RIT) 2 Firefighters Incident Safety Officer 1 Firefighter Accountability Officer 1 Firefighter Vehicle Operators 2 Firefighters Attack Lines 2 Firefighters Back Up Handlines 2 Firefighters Truck Company (Rescue/Ventilation/etc.) 2 Firefighters

5.2. Fire Vehicle Criteria. The requirement for earning structural fire fighting vehicle authorizations is based on an installations’ estimated fire flow and travel time criteria. This requirement is determined utilizing the guidelines contained in DoDI 6055.6 and UFC 3-600-01, Unified Facilities Criteria Fire Protection Engineering for Facilities.

5.2.1. In the AF, Allowance Source Code 010 provides authorizations for a core vehicle set that includes two structural fire fighting vehicles for an installation. These structural vehicles may be either a P-22 and a P-24, or both P-22s or both P-24s.

5.2.2. P-33 (75 Foot) Quint. Another option is to replace one pumper with a P-33 Quint authorization. A P-33 Quint is a structural fire fighting vehicle with laddering capability of 75 feet or less and has a fixed elevated waterway without a load carrying work platform. A P-33 Quint may be substituted for either one P-22 or one P-24, but not both. A Quint is authorized at installations with facilities that are 4 or more stories in height or as determined by the MAJCOM. A base may have only one Quint per vehicle set. If a Quint is assigned it takes the place of one pumper authorization. Any base with a P-21 (Aerial Platform) vehicle assigned is not authorized a Quint. However, a MAJCOM may substitute a P-33 Quint for a P-21 Aerial Platform Vehicle Authorization.

5.2.3. P-21 (105 Foot) Aerial Platform Vehicle. An Aerial Platform Vehicle is authorized at bases with large: industrial facilities, depot level warehouses, medical centers and residential occupancies above four stories.

5.2.4. Additional authorizations for structural fire fighting vehicles will be determined based on fire flow requirements and travel time criteria as determined utilizing the guidelines contained in DoDI 6055.6 and UFC 3-600-01.

5.2.5. P-34 Rapid Intervention Vehicle with Ultra High Pressure Technology. IAW NFPA 1710, para 5.2.4.1.1 (3) "Establishment of an effective water flow application rate of 300 gpm (1140L/min) from two handlines, each of which has a minimum flow rate of 100 gpm (380 L/min) with each handline operated by a minimum of two members to effectively and safely maintain the line". The P-34 RIV does not provide this capability and therefore is not intended for interior structural firefighting. AFCEC/CXF is conducting independent testing of UHP on structural firefighting applications. Upon completion of tests, review of results, a determination will be made as to proceed forward with utilizing the P-34 RIV on interior structural fires as an equivalency.


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5.2.6. NFPA 1710, para 1.4 provides guidance on such determinations. "Equivalency. Nothing in this standard is intended to prohibit the use of systems, methods, or approaches of equivalent or superior performance to those prescribed by this standard, provided technical documentation is submitted to the authority having jurisdiction to demonstrate equivalency."

5.3. Relationship of Staffing and Vehicles to Standards of Cover (SOC). Locally-developed SOCs define a specific fire fighting capability predicated on quantified levels of fire department resources (staffing, vehicles, equipment and fire station location(s)). If any of these resources are not available, all fire fighting objectives may not be achievable. The critical objective is that a fully staffed engine company can accomplish initial fire suppression actions prior to flashover. The SOC articulates fire fighting capabilities and limitations and should include accurate impacts when operating at OLS, RLS and critical level of service (CLS), including:

5.3.1. Defensive vs. offensive fire fighting operations

5.3.2. Expected loss severities

5.3.3. Constraints on fireground tasks and capabilities (see Table 3)

5.3.4. Incident Command structure

5.3.5. Critical tasks for each service provided

5.3.6. Historical performance

5.4. Emergency Response Capability (ERC) – ERC is a measure of FES capability tied to available personnel; individual’s training and certifications; and equipment and supplies needed for fire fighting operations.

5.5. Levels of Service and Rules of Engagement

5.5.1. Optimum Level of Service (OLS), (Green). The level of service is Optimum when all authorized resources are available for emergency responses. Structural responses are expected to meet AF response objectives, and continuous fire fighting activities are likely until follow-on resources arrive from other FRDs or mutual aid partners. During OLS, FES objectives are likely to be achieved at emergency incidents.

5.5.1.1. The 2013 AFMS provides FES manpower authorizations to the OLS during weekdays (Monday through Friday).

5.5.2. Reduced Level of Service (RLS), (Yellow). The level of service is Reduced when there is a moderate shortfall in FES resources (manpower, vehicles or equipment/supplies) but those shortfalls have not reached a critical level.

5.5.2.1. There are typically multiple levels of capability within RLS; at the higher levels, successful outcomes may be possible when the initial response is timely or the fire development


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is constrained by the absence of combustibles or the impacts of sprinkler protection.

5.5.2.2. This level of service represents increased risk and increased loss expectations. The SOC should identify specific impacts for RLS in each FDZ.

5.5.2.3. The 2013 AFMS provides manpower authorizations to the RLS during weekends at installations that have a weekend flying mission.

5.5.3. Critical Level of Service (CLS), (Red). The level of service is considered Critical when the initial full alarm assignment within an FRD has been reduced to a total of seven firefighters and one or more structural fire fighting vehicles, recognizing that the fifth, sixth and seventh firefighters may be responding from a different location. At CLS, FES responders can only provide interior fire fighting activities and rescue operations for a short period of time; FES operations cannot be sustained without additional resources.

5.5.3.1. CLS is the minimum capability that must be maintained at all times. This level of service represents increased risk and loss potential due to limited capability. CLS is further defined as the first arriving company at remote and outlying areas where additional resources may not arrive within 12-minutes.

5.5.3.2. The 2013 AFMS provides manpower authorizations to the CLS during weekends (Saturday and Sunday) at installations that are structural only and/or do not have a weekend flying mission.

5.5.3.3. The 2013 AFMS provides manpower to the CLS at remote and outlying fire stations; the expectation is that the local FES will provide an appropriate RM for such FRDs and operating such FRDs at CLS is acceptable/approved by the installation commander.

5.5.3.4. The AFMS provides authorizations based on statistical risk periods throughout the AF. However, the Fire Chief is responsible for allocating those resources based on local risk assessments.

5.5.4. Inadequate Level of Service (ILS). The level of service is considered Inadequate when emergency response capability in an FRD falls below CLS. Interior fire fighting operations are prohibited unless the IC determines that responders entering the structure are unlikely to be injured or killed.

5.5.5. Exterior (defensive) operations may commence and continue regardless of the number of firefighters on the fireground. 5.5.6. Interior (offensive), procedures for interior structural firefighting at ILS:

5.5.6.1. At least two firefighters enter the IDLH atmosphere and remain in visual or voice contact with one another at all times. At least two firefighters are located outside the IDLH atmosphere and all firefighters engaged in interior structural fire fighting must use SCBAs.


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5.5.6.2. One of the two individuals located outside the IDLH atmosphere may be assigned to an additional role, such as incident commander in charge of the emergency or safety officer, so long as this individual is able to provide assistance or perform rescue activities without jeopardizing the safety or health of any firefighter working at the incident.

5.5.6.3. IAW OSHA 1910.134, Note 2, to paragraph (g) “Nothing in this section is meant to preclude firefighters from performing emergency rescue activities before an entire team has been assembled.”

Technical Implementation Guide 1710-16

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