Over the last decade, fire departments and districts have assumed responsibility for an increasingly broader range of special operations. Today there's heightened awareness of the potential need for dedicated training and development of all specialized skills such as rope rescue, swiftwater rescue, trench rescue, structure collapse, heavy rescue and other fields.

One of the specialty disciplines is confined-space rescue. Although unique in specifics, it shares many of the same departmental issues as the other specialized areas.

Determining whether your agency needs confined-space rescue capability begins with a response area survey. Such a survey also will be very useful later for budget justifications. The federal standard OSHA 29 CFR 1910.146 provides straightforward information on declaring an area a permit-required confined space. This federal standard may be superceded by your state's relevant standard if your state's is equal to or more protective. It's those areas that meet the permit-required space criteria that are the concern.

Too often, realization of the need for confined-space rescue capability becomes apparent post-emergency, after a confined-space rescue attempt reveals severe errors or results in unacceptable outcomes. The prices paid in these circumstances can be fines, loss of public support and, in the worst cases, loss of life. If your department has permit-required designated areas and entry is performed as part of its function, you likely have an identifiable need for training equivalent to the potential all-life hazards that may be encountered.

If your department has a large private company operating in its jurisdiction, and that company has its own confined-space rescue plan and personnel (such as might be the case with a mining operation or large production company), then your role might be a supporting position. Even then your personnel need basic awareness training to be an asset to the private operation. Many times they can be an integral part in actual rescue operations if preplanning includes these trained personnel from your agency.

Once the need for a confined-space rescue team has been established, there are two distinct issues related to its formation and operation: finance and logistics. Your department will need to establish a plan of professional initial and ongoing training with a response system in place that has capable and rapid implementation. It also will have to determine and secure the initial and ongoing budgetary commitments from the appropriate governing municipality or county.

Financial and logistical support

Establishing a confined-space rescue team is not inexpensive. The necessary equipment and specialized training costs are considerable. Expenses include not just startup costs but ongoing training and maintenance costs. Proper preparation of your budgetary requirements will be crucial to your success. Establishing a confined-space rescue team is no different than meeting the need for any new or previously unmet emergency preparedness or disaster planning.

Successful support for your need begins with a well-prepared and thoroughly researched justification report. The OSHA or state regulations are a large help in showing the legal need for implementation of your rescue team or special operations plan. And we all know that legal issues can propel your request to the forefront of a government body instead of the back burner once such issues are put in writing.

Risk assessment is an important factor for the body that will be reviewing and making a decision regarding your proposal. Be sure that the proposal clearly answers the question, “What is the risk (or liability) if this plan is not approved?”

Remember, too, that risk and liability are of concern to local businesses that are affected by them. Employers that have and maintain confined spaces must meet fairly stringent requirements under the regulations and this includes rescue preparedness. Be sure they are aware of your proposal and its ramifications.

Proposals also can be crafted with estimated implementation timelines, such as a two-, three- or five-year plan. Such plans often can help overcome financial barriers and improve chances of approval. The first year of the plan, for example, might include the training of core personnel and the first steps toward equipment acquisition. With such a plan you also will be able to advise private businesses of scheduled confined-space rescue capability.

Any municipality served possibly will have its own confined-space rescue needs and requirements, such as those of the sewer department, the water department and so forth. Interaction with those departments, gathering information and gaining the knowledge needed to complete your report, can be vital, because it can help unify a plan from not only the emergency response view but from those of the “employer” as well.

Budget planning

Once you've established the need for confined-space rescue capability via an area survey that identifies specific spaces and hazards with the proper application of the OSHA standards that affect your department's role and the agency's risk assessment, you can begin the work necessary to determine the actual costs involved in establishing confined-space rescue capability.

There are specific equipment needs for confined-space rescue that are costly initial purchases. Atmosphere control and associated equipment (for example, SABA or supplied air breathing apparatus) top the list for initial equipment expenditures. There are many qualified suppliers of confined-space rescue equipment from whom you can request information and pricing; all can be valuable sources of information for your research.

Training is an issue that deserves competent research, too. Look for recommendations from other agencies and established confined-space rescue groups. Many times the initial training will set directions regarding equipment and long-term decisions on logistics and planning. Some groups elect to make equipment purchases after training is complete so that specific needs are better understood before purchases are made. Regardless of brand or style, the equipment must fit the group's training.

Make sure that your plan provides for future equipment additions and adaptability to other uses you may identify later. It's difficult to justify additional high-cost items at a later date if your previous purchases are quickly obsolete or rendered unusable by an error in your equipment selection. Talk to other jurisdictions and agencies that have a successful and progressive team. Don't limit yourself to one geographic area. Preliminary study requests can be made that include the funding of your research that will enable you to travel out of state for information. The money you save in buying the proper equipment (and possibly learning from other departments earlier mistakes) can easily offset such expenditures.

Mutual aid with surrounding jurisdictions may be an option for some agencies. Although it can add a layer of complexity, the potential for sharing expenses should be examined if there's a receptive department or agency that you border and work with under other circumstances.

Private businesses also can play a big part in obtaining the financial backing to form a confined-space rescue unit. Their interests are served because it's their employees who will gain the protection from your plan and it allows them to more easily meet special rescue plans that may be required under OSHA. Your plan can be a part of the solution to their confined-space legal requirements and in-house safety program. Seek out the safety supervisor of those businesses and, if your agency allows, seek their support with partial funding. Many times the business will agree to buy a specific piece of equipment for you in return for your assurance that your department will respond and be the mitigating agency if a confined-space rescue should be ever be needed.

Keep in mind, however, that such assurances may be legally binding and require your agency to ensure that your services are available as promised. Any time your services are not available you will have to notify the businesses to make sure that they're not engaging in operations that might require your rescue team. Some jurisdictions also do this in reverse if operations are infrequent by having the company notify the department of a planned space entry. This can be made part of the permit process.

Effective response systems

Equipment and training aren't all there is to forming a confined-space rescue response team or unit. How equipment and personnel will be implemented in a real emergency must be examined. As in other fire or rescue operations, speed is essential to increase the chances of a successful rescue. Unlike more familiar day-to-day preparedness, however, you will be faced with situations requiring specialized equipment that only certain employees can possibly use. Just as with other special operations, you must have a system in place that meets the same rapid response needs as other emergencies.

The majority of departments that adopt a confined-space rescue plan can not train all their employees to the specialized levels required. Instead, core individuals are identified to become certified in the confined-space rescue operational areas. The rest of the department is trained to a supportive level. This training is also documented and refreshed at acceptable regular intervals.

Many agencies establish a specific selection process to establish their core personnel. This can be done by instituting an application format for employees desiring to be part of the core group. Confined-space rescue isn't something that every employee may be capable of performing, so standards should be established that take this into account. Specific obligations and requirements for those selected must be explained in detail and many times will require the inclusion of union personnel where contract obligations are affected, such as overtime, standby pay, off-duty responses, shift changes and so forth. The potential overtime or comp time is a large budgetary issue for most agencies and should be an important factor in your plan.

The required number of available trained personnel will establish the lower limit for the size of a core group. In most cases you'll need at least six trained personnel to be able to attempt an entry rescue. This can vary somewhat based on the skills of your entire on-duty staff and exact emergency at hand, but a lower limit of six is typical. Sick leave, vacation and other factors also must be incorporated in your planning.

Some departments are able to maintain the minimum number of trained personnel for each shift. Those personnel who have accepted the position (and therefore obligation) may have to agree to shift changes to meet minimum staffing. Most agencies that have other specially trained groups, such as swiftwater rescue or rope rescue, will already have such standards in place. Check with those agencies if you need ideas on dealing with staffing issues.

For smaller departments, transporting equipment to the scene of an incident can be an issue. Because the equipment is dedicated to confined-space rescue and can not usually fit on first-response apparatus, your plan must include where the equipment will be kept and how it will be transported when needed. Just as with personnel, if equipment can't be rapidly deployed, your plan will be ineffective. Make sure to include contingencies for other emergencies or apparatus that may be out of service.

Putting the plan into action

Many of the initial steps of putting a plan into action are paper-oriented. Departmental policies and regulations will need to be revised or established to allow the confined-space rescue plan to function as expected. Among the issues that should be examined are:

Training standards

Training for core personnel and support personnel (or the entire department) should be identified based on topic, number of hours, means of performance evaluation and need for ongoing refresher sessions. Individuals involved with confined-space rescue entry and air-system handling will need to be trained quarterly at a minimum and be evaluated on all specialized atmosphere and breathing apparatus. Timed exercises are important; unlike other emergency circumstances, confined-space rescuers many times will already be behind the clock as they initiate rescue operations.

Response initiation

All department officers and decision-makers will need guidance as to when initiation of true confined-space rescue operations are appropriate. Because declaring a confined-space rescue emergency response can result in additional costs to the department, some officers might delay the decision to do so. Having clearly defined and well-understood standards in place alleviates indecision that might delay starting the proper response.

Mutual aid

Existing agreements may need to be revised or new ones adopted if mutual aid is part of your overall plan or support system.

Reimbursement agreements

When private companies rely on a department's ability to provide specialized response, negotiating a reimbursement agreement may be appropriate. Having such agreements on file in writing is important to your response plan and certainly will be a requirement by your agency if such agreements are made.

Incident command

Your ICS will need to be altered to include the specialized positions for confined-space rescue, either by incorporating them into an existing ICS or adopting a new ICS policy just for confined-space rescue.

Dispatch

Your procedures should be reviewed and perhaps a new call type entered into your system. Mutual aid issues also can be affected within the dispatch system.

Permit process

Your department will need to create a confined-space entry permit process. Permits may seem to be merely safety checklists, but they also serve as a record of approval by a qualified employee that all safety procedures have been followed prior to and during an entry. Seek out sample entry permits from other agencies that have confined-space rescue programs and consider the elements that best fit all your needs.

An additional aspect of the permit process is the incorporation of your agency into permits of private businesses. Such permits many times have sections stating that the rescue agency (your department) has been notified in advance of the entry, along with the location and times of all entries. Your department will need to adopt a procedure to record such notifications and determine how they will be handled within your department. Be sure the procedure allows for unavoidable out-of-service situations and has a mechanism for updating all who might receive notifications from the businesses.

Maintenance

Just as with training, there needs to be an ongoing plan in place for servicing and maintenance of specialized equipment, especially atmosphere and breathing apparatus.

Deployment considerations

Just as the basic firefighting tools need to be able to be put into action quickly and without redundant or wasteful effort, so must your confined-space tools. Rescue equipment, however, is different than the equipment used by regular entry personnel. Deploying to an incident in a rapid fashion depends on the design of your apparatus, its mounting options and storage. Innovative ways to mount and store the tools and equipment often become apparent during training, Many confined-space rescue units use power reels for their SABA system, pre-set harnessing systems and pre-rigged extrication devices.

While of course you will want to consider as many potential scenarios as possible in advance, bear in mind there are issues that will be unforeseen. Over the course of time most will be addressed through training and additional preparation. Interacting with other established confined-space rescue teams and reviewing their processes is one of the most useful things you can do during your planning and startup stages.

Because confined-space rescue is not a frequent emergency compared to a department's other calls like fire and EMS, it can be challenging to bring your confined-space rescue capability to a fully prepared level in a short amount of time. What should be remembered is that confined-space rescue is a necessary reality as shown by your area survey and requires specialized equipment and training to be successful. Proper and ongoing preparation and planning is critical in providing protection to those employees and citizens working in permit-required confined spaces.

The community standards and expectations of your citizens are changing. Departments and agencies like yours more and more often are expected to handle specialized incidents competently and professionally. Confined-space rescue is something that should not be ignored or tabled until an emergency presents itself in your jurisdiction. Determining if a need exists and working toward a plan to properly handle such needs may be the difference between a successful rescue and a disaster in your district.

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Craig Byron is a 30-year fire service veteran and a municipal fire lieutenant (retired) in Washington State. He developed his fire department's special operations unit, serving as the team leader for over 10 years, and is a certified instructor for confined-space, rope, trench and heavy/building collapse rescue. He is a former USAR commander with FEMA national response teams. Byron is currently a crime scene investigator and latent fingerprint technician.