New Dimension Urban Search and Rescue
             Project Team

GUIDANCE FOR BRIGADES CONCERNING
  INTERIM URBAN SEARCH & RESCUE
 ARRANGEMENTS WITHIN ENGLAND,
   WALES AND NORTHERN IRELAND

                                CONTENTS
1.0  Introduction
2.0  USAR System – a vision
     2.1   Response
     2.2   Structures & hazards
     2.3   Equipment
     2.4   Training and development for Operational Responders
     2.5   Training and development for Command
3.0  Planning for Urban Search & Rescue
4.0  The Interim Arrangements
     4.1   Brigades forming the First Tranche
     4.2   Brigades identified as part of Subsequent Tranches
     4.3   Other operational resources
Appendix ‘A’ – Equipment cache for USAR Units
Appendix ‘B’ - Arrangements for requesting USAR assistance
Appendix ‘C’ – Location of Interim USAR Units
Appendix ‘D’ – Frequently Asked Questions (FAQs)
 

    INTERIM ARRANGEMENTS for URBAN SEARCH & RESCUE
1.0 Introduction
    This paper builds on the advice from HM Fire Service Inspectorate offered to
    brigades in October 2001 and January 2002 concerning calls for the assistance of the
    United Kingdom Fire Service Search and Rescue Team.
    Since that time the New Dimension Urban Search & Rescue Project Team have been
    seeking to develop an enhanced USAR response. The terms of reference for the New
    Dimension USAR Project Team are:
    “To develop a system to ensure that the UK Fire Service is sufficiently prepared to be
    able to respond in an Urban Search and Rescue (USAR) capacity to all incidents,
    including those beyond the normal response of a brigade. To identify resources
    required for this purpose and to manage the conception, design and implementation
    of appropriate Urban Search and Rescue facilities, procedures and training.”
2.0 USAR System – a Vision
    To assist brigades in visualising USAR response as it will be developed and to put
    into context the interim USAR arrangements, the USAR Project Team have sought to
    create a vision of the overall USAR system.
    2.1     Response
            The vision created by the Project Team will see a USAR system that reflects
            the levels of response within the service, already identified in other areas of
            the New Dimension (ND) Programme, namely;
            Level 1 – First responding appliances.
            Level 2 – Brigade-wide response following ‘make-up’.
            Level 3 – Response invoking Section 2 and Section 12 arrangements.
            Level 4 – Regional or National response.
            Level 1 response will be limited to pumping appliances, whilst Level 2 would
            see the additional response of specialist appliances from within the brigade
            where the incident occurred. A Level 3 response would include the attendance
            of reinforcing pumps and special appliances from neighbouring brigades. A
            Level 4 response will include large numbers of personnel and equipment from
            within the affected CACFOA region or from other regions in attendance over
            an extended period of time.
    2.2     Structures and Hazards
            The response system will also recognise that the hazards and complexity of a
            structural collapse vary according to the type of structure(s) affected. The
            Project Team has developed a framework that reflects the increasing
            demands on a search and rescue organisation caused by different structure
            types, these are:
            Structure Categories
            Category I – Light Structures
            Category II – Medium Structures
            Category III – Heavy Structures
            These categories are reflected in international standards formulated by the
            United Nations Search and Rescue Advisory Group (INSARAG) and operated
                                          -4-
    by urban search and rescue responders in Europe, USA and Australia.
    Examples of these categories are as follows:
    2.2.1 Category I – Light Structures
            The capability to conduct safe and effective urban search and rescue
            operations during collapse structure incidents involving the collapse or
            failure of structures of light-frame or traditional (un-reinforced
            masonry) construction.
    2.2.2 Category II – Medium Structures
            The capability to conduct safe and effective search and rescue
            operations at structure collapse incidents involving the collapse or
            failure of heavy timber, reinforced masonry, and modular
            concrete construction.
    2.2.3 Category III – Heavy Structures
            The basic capability to conduct safe and effective search and rescue
            operations at structure collapse incidents involving the collapse or
            failure of reinforced concrete or steel-frame construction.
2.3 Equipment
    The Project Team require a system where the equipment; types, quantities
    and allocation, will reflect the levels of response.
    Similarly, different categories of structures (Light, Medium and Heavy)
    involved will require increasingly powerful and sophisticated equipment in
    order that an effective response can be made without a corresponding
    increase in the risk to firefighters. The training requirements will also increase
    in line with the complexity and sophistication of the equipment.
2.4 Training and Development for Operational Responders
    The Project Team recommend that all operational responders receive training
    and information concerning a response to collapsed structure incidents, that
    is appropriate to their role. Additionally, the system recognises that there will
    be varying categories of responder, each requiring a specific level of skill and
    knowledge.
    These categories are as follows:
      Responder Categories
      Category I – Light Urban Search and Rescue
      Category II – Medium Urban Search & Rescue
      Category III – Heavy Urban Search & Rescue
      Category IV – Urban Search & Rescue Advisor
    Training and development for these categories will be based on national and
    international operating procedures. Training and development will be linked to
    the national role maps and be integral with and form part of the Integrated
    Personnel Development System (IPDS).
2.5 Training and Development for Command
    The Project Team has identified a training and development need for
    personnel with command responsibilities at USAR incidents that is appropriate
    to their role. A model recommended by the Project Team has 3 levels of USAR
    command training:
            Operational (Bronze)
         •
            Tactical       (Silver)
         •
            Strategic      (Gold)
         •
                                    -5-
            Training and development will again be linked to the national role maps and
            be integral with and form part of the Integrated Personnel Development
            System (IPDS).
    To conclude, this paper identifies that a considerable period of time will be
    required to introduce a comprehensive USAR system into the UK Fire
    Service. In view of the current and foreseeable risk levels it is imperative
    that interim arrangements are provided to ensure that an adequate
    response capability is available throughout this development period. This
    paper defines these interim arrangements, which are based on the current
    planning assumptions of the New Dimension Urban Search and Rescue
    Project Team.
3.0 Planning for Urban Search & Rescue
    The Project Team’s planning assumptions have been based on the possibility of
    multiple incidents occurring within a single fire authority, or a single incident beyond
    the capability of an individual fire authority or a combination of both.
    The Project Team have concluded that the interim capability must include the
    mobilisation and attendance of USAR trained responders and equipment suitable and
    sufficient for the search and rescue of persons trapped within the debris of collapsed
    heavy reinforced concrete or steel framed structures (i.e. the worst-case scenario).
    In addition, sufficient resources must also be available to attend a second or
    subsequent incident occurring anywhere within the UK.
4.0 The Interim Arrangements
    On 16 December 2002 the Minister authorised interim funding to a total of £**m.
    The funding allowed for a certain level of equipment and training provision. The
    interim funds are therefore being used to provide a first tranche of:
    •   Twenty-five units of USAR equipment (see Appendix ‘A’)
    •   The lease of sufficient vehicles to transport this equipment
    •   Initial training for operational responders
    Funds have been allocated to the provision of initial USAR training facilities at the
    Fire Service College.
    As this funding is insufficient to provide for all brigades, it was decided to
    concentrate resources based on identified risk and geographical coverage and also to
    build on the existing USAR capabilities provided by UK Fire Services Search and
    Rescue Team (UKFSSART). It has therefore been decided that whilst the provision,
    detailed above, will form the national response and will be available to all brigades,
    the first tranche of equipment, vehicles and training will be provided to the following:
    •   1  unit to each UKFSSART Brigade (12 in England & Wales)
    •   1  unit to the CACFOA North East Region (no UKFSSART brigade)
    •   1  unit to the CACFOA South West Region (no UKFSSART brigade)
    •   3  units to London Fire Brigade
    •   1  unit to Northern Ireland Fire Brigade
    In addition, 3 units will be allocated to the Fire Service College and 2 further units
    will be held as a strategic reserve at the ODPM facility at Marchington.
    Brigades should also be aware that under separate arrangements Scotland will be
    provided with 3 USAR Units. These will be positioned in Strathclyde Fire Brigade,
    Lothian and Borders Fire Brigade and Grampian Fire Brigade. Details of the location
    of USAR Units are included in Appendix ‘C’.
                                            -6-
4.1    Brigades forming part of the first tranche
       Brigades identified under the Interim Arrangements will receive:
       •   USAR equipment as per Appendix ‘A’.
       •   One USAR vehicle per each unit of equipment - a 7.5 tonne box van with a
           manual gearbox, tail lift and two crew seats (driver + one).
       •   Suitable and sufficient training to allow the vehicle and equipment to be
           deployed.
       These Brigades will be asked to provide:
       •   Crewing arrangements to support the deployment of the USAR units
           (minimum of 5 responders per unit).
       •   Suitable transport arrangements to support the deployment of the USAR
           unit(s).
       •   Suitable location for the USAR vehicle (preferably under cover).
       •   Mobilising arrangements.
       •   Arrangements for the release of personnel for training.
       •   Arrangements for the release of personnel for extended deployment.
4.2    Brigades identified as part of subsequent tranches
       It is vital that brigades receiving USAR resources as part of subsequent
       tranches continue to plan for large-scale structural collapse incidents. These
       brigades will need to be aware of the interim USAR arrangements, and must
       consider the following:
       •   Trigger-points and types of incident where the national USAR
           arrangements may be invoked.
       •   How to request support through the national USAR arrangements (these
           arrangements are detailed in Appendix ‘B’).
       •   The capability of the USAR Units.
       •   The provision of support facilities required by the USAR Units.
       Brigades also need to consider the arrangements that will be put into place
       once the USAR capability is delivered to them. This should include
           •   USAR team selection
           •   Location of the USAR vehicle
           •   Mobilising methods
4.3    Other operational resources
       As part of the Interim Arrangements, HMFSI is developing a database of
       resources that may be required at the scene of operations of a major
       structural collapse. This database will be based on the templates developed
       by the New Dimension Regional Implementation Teams and, as such, will be
       linked to a GIS system. Examples of resources on the database include;
       search dog teams, crane and lifting contractors, structural specialists etc.
       Brigades requiring such resources will be able to access them through the
       call-out arrangements detailed in Appendix ‘B’.
More detailed advice and guidance concerning the implementation of the Interim
USAR Arrangements has been included in the form of ‘Frequently Asked Questions’
(FAQs) and these can be found in Appendix ‘D’.
Information concerning the complete USAR Implementation Strategy for the Fire
Service within England, Wales and Northern Ireland, of which the Interim
Arrangements are only one part, is due to be published shortly by the Office of the
Deputy Prime Minister.
                                      -7-
        EQUIPMENT CACHE FOR EACH USAR UNIT ISSUED UNDER THE INTERIM ARRANGEMENTS.                           Appendix ‘A’
                                  Quantity                                           Notes
        Item of Equipment
Search camera (advanced)              1       Search Cam
Search camera (basic)                 1       Snake Eye
Life detector                         1       Delsar
Victim Locator – communications       1       Con-Space Communications
probe
Hammer/Breaker Drill                  2       Hilti TE76 (ATC)– rotary impact drill - 110 volt
Metal Shoring Kit                   1 set     Paratech – temporary shoring equipment
Timber Cutting Workstations           1       including De Walt circular saw DW383L (110v), Double Bevel Mitre Saw DW708L
                                              (110v), Mitre Saw Workstation DE7023, 2 Framing Nailers (Round Head) D51845
                                              and Electric Hand Compressors D55155.
Concrete cutting and breaking       1 set     Stanley Hydraulic Set (including Power pack HP90, heavy breaker drill BR67
equipment                                     (vibro dampened), chipper drill CH15, cut-off saw CO25, and concrete saw DS11
110 volt Generator – 6KW              1
110 volt Generator – 3KW              1
Scene Lighting                      4 sets    Clark Masts – (incl. mast and triple head lamp unit)
High Pressure Air Bags              1 set     Zumro NT Bags - set of 6 (2 x 132 tonne, 2 x 58 tonne, 2 x 23 tonne +
                                              associated equipment)
Hilti DD 130 Coring drill             1       Diamond tipped coring drills 40 mm, 52mm, 62mm
                                              (+ 32mm training bits)
Hilti PS 20 cable/rebar detector      1       Electric cables, ferrous rebar, and copper pipes
Fischer Fixing Kit                  1 set     40mm concrete anchors + drill bit, setting tool, and eyebolts
                                              Includes training items
                                                                               Appendix ‘B’
     ARRANGEMENTS FOR REQUESTING URBAN SEARCH & RESCUE ASSISTANCE
                               WITHIN THE UNITED KINGDOM.
Levels of Response
1. Advice by telephone.
2. The attendance of an advisor to support the Incident Commander in any structural
    collapse incident.
3. The attendance of specific urban search and rescue resources, e.g. search dogs,
    acoustic/seismic search, breaking and breaching structural concrete, temporary shoring
    of structures.
4. The attendance of USAR Units that are capable of searching for, location and rescue of
    casualties trapped within the debris of collapsed heavy reinforced concrete or steel
    framed structures.
Capability available to UK Brigades as part of the Interim USAR Arrangements
Urban   Search and Rescue in collapsed buildings/structures including:
    •   Acoustic/seismic search equipment
    •   Search cameras
    •   Concrete drilling, cutting and breaking equipment
    •   Communication probes
    •   Electrical power and lighting equipment
    •   Heavy-duty shoring equipment
    •   Heavy-duty lifting with air bags
    •   Provision of search dogs
Call out arrangements
The London Fire Brigade’s Command Support Centre (who are responsible for the
mobilisation and co-ordination of the national USAR Units and for notifying appropriate
authorities and organisations) should be telephoned on:
                020 **** ****
Brigades should be prepared to provide the following information:
•   Information on the incident such as, scale and nature of the incident,
•   What is involved – building or structure type,
•   Resources required,
•   Rendezvous point and nearest available suitable helicopter landing area (this should be
    carried out in collaboration with the local police force), and,
•   Any other relevant information.
All subsequent communications should be passed via the LFB Command Support Centre.

    THE INTENDED LOCATION OF INTERIM URBAN SEARCH AND RESCUE UNITS
                                        IN THE UK
Urban Search & Rescue Units will be developed in the following locations:
London – Essex – Kent – West Sussex – Hampshire – South Wales – Mid and West Wales –
West Midlands – Leicestershire – Lincolnshire – Cheshire – Greater Manchester – Lancashire
– Northern Ireland – Strathclyde – Lothian and Borders – Grampian.
In addition, Interim Urban Search and Rescue Units will go to the North East and South
West CACFOA Regions at locations yet to be determined.
                                                                                 Appendix ‘D’
FREQUENTLY ASKED QUESTIONS (FAQ)

Q: What are the planning assumptions for the mobilisation of the USAR Units?

A: Co-ordination of mobilising will be determined by national co-ordination arrangements
based on existing UKFSSART deployment arrangements. USAR Units will be expected to
mobilise as soon as possible but within 2 hours of the initial notification. A minimum of 5
personnel will mobilise, including an identified crew/watch commander, when proceeding as
part of mutual assistance arrangements to other brigades. The interim USAR Arrangements
will provide for 5 USAR Units to attend a major incident immediately and this offers a
minimum of 25 USAR responders at the incident. Additional resources, to be determined by
the national co-ordination arrangements, will be placed on stand-by in order to provide
round-the-clock working and resilience.

Q: Who can drive these USAR vehicles?

A: A 7.5 tonne vehicle with a manual gearbox has been selected because it gives the
greatest scope for Fire Service drivers. A recent change in the law regarding vehicle
categories requires Brigades to ensure that their drivers possess the relevant license.

Q: Who has operational control over these USAR Units?

A: The role of the USAR Units is to provide specialist support for the Incident Commander at
a structural collapse incident. The intention is that they will fit seamlessly within the
Incident Command System and supervisory support will be mobilised via the national co-
ordination arrangements to assist in this process.

Q: What about the crewing and transport arrangements for the USAR Units?

A: The USAR Units will deploy with a minimum of 5 responders per unit. Whilst no
maximum crewing is recommended, brigades must consider maintaining USAR resilience for
a second or subsequent incident within their own region. Brigades will need to consider the
arrangements necessary to convey the USAR vehicle, any additional support vehicles and
personal equipment to the scene of operations. Alternatives may include:
        Personnel carrying vehicle (PCV)
        Fire appliance
        4 WD or similar

The details of how the USAR vehicle, equipment and responders are transported to the
incident are best left to the discretion of brigades. Further advice concerning the marking of
the interim vehicles and the provision of sirens/horns and blue lights will be available
shortly. It is considered that a minimum of 5 personnel is required to operate the
equipment provided on the USAR vehicle. However, only 2 personnel can travel on the
vehicle. Depending on how and where the interim vehicle is deployed, Brigades may need to
consider the best method of transporting both the vehicle and the personnel.

Q: What would be the length of time of a deployment under the Interim
Arrangements?

A: It is difficult to be precise about this, as the circumstances pertaining at the time will
have an influence on this decision. However, Brigades will need to consider that it is
possible that responders will need to be deployed for extended periods of time (a planning
assumption is for 7 days) and make appropriate welfare and relief arrangements. 

Q: Can Brigades use these USAR Units internally at other types of incident?

A: Yes. Mobilisation and crewing in these situations would be at the discretion of the host
brigade and any costs incurred would have to be met at a local level.

Q: Can the brigade expand and develop the equipment package as supplied by the
ODPM?

A: No. Each USAR vehicle will only carry the equipment package as supplied by the ND
project as it is considered essential that this remains a “standard package”. Additional
items will be added by the ODPM and a process to evaluate and procure any equipment,
outside of this standard package, will be put in place in the future. It is the intention that
this process will involve the brigades participating in the Interim Arrangements.
Brigades should note that contractual arrangements regarding the provision of this
equipment to Brigades are still to be agreed – a New Dimension working group is dealing
with this issue.

Q: What will be the standards for Personal Protective Equipment and clothing for
personnel crewing the Interim USAR Units?

A: In the absence of an appropriate UK or European standard, Brigades will have to
undertake a suitable and sufficient risk assessment to determine the appropriate levels of
PPE and RPE for personnel responding under the Interim USAR Arrangements. Best-practice
is found in the national UKFSSART standard and in the NFPA 1951 document for urban
search and rescue. HMFSI will support this process with guidance and advice. Brigades will
need to consider arrangements to ensure sufficient PPE is available for extended USAR
operations. In the longer-term outline standards and framework agreements will be set up
from which brigades can select their preferred PPE.

Q: What are the provisions for communications?

A: Brigades must ensure that suitable 24/7 mobilising and communication arrangements
are in place to ensure initial alert notification and subsequent information can be passed to
responders. Suitable communications will be provided in order that continuous contact with
the USAR Units and responders can be maintained once they have mobilised.

Q: In the event of a deployment, who pays?

A: Costs incurred as result of catastrophic incidents (COBRA invoked) will be reimbursed
through arrangements already agreed as part of the New Dimension Project.

Q: What are the Training and Development implications and arrangements?

A: It is the intention that all responders will receive suitable training in order to provide a
safe system of work. The New Dimensions Project will meet the cost of this training. A
planning assumption is for up to 100 hours training per person. Funded training will, at this
time, only be available for those personnel with the role of responder under the Interim
Arrangements. Due to the current industrial situation it is difficult to determine a firm
timetable for training, however planning for training is at an advanced stage and will involve
training opportunities at a number of venues.
Brigades will be requested to maintain a list of all personnel available for response on the
USAR Units and this should include the maintenance of training records. Further information
concerning USAR training, including planning for training detachments, will be promulgated
as soon as possible.

Q: Will Brigades have to insure, maintain, repair and inspect the vehicles and
equipment supplied under these Interim Arrangements?

A: These issues, and the legal implications of such an arrangement, are still being
considered by a New Dimension working party. Advice and guidance on these issues will be
available prior to the equipment and vehicles being delivered into brigades.

Q: If I have further questions concerning the Interim USAR Arrangements, where
can I go to obtain the answers?                                    

A: Please contact the New Dimensions Urban Search and Rescue Project Team at HM FireService Inspectorate.