Carlton CountyCounty,, Minnesota
Ambulance, Rescue, and Fire Study
Prepared By: Phil Kouwe Robert McNally John Best Bernie Harchar Matt Hickey Roy Palmer
20052005----20062006
Copyright 2006, Emergency Services Consulting inc. All rights reserved. No part of this publication may be reproduced, stored in a retrieval system, or transmitted in any form or by any means, electronic, mechanical, photocopy, recording, or otherwise without the expressed written permission of Emergency Services Consulting inc.
Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Table of Contents
Table of Figures ...... ii Executive Summary ...... 1 Section I - Current System Analysis...... 9 History and Development ...... 9 System Overview ...... 10 Carlton County Response Time Capabilities ...... 22 Individual Agency Evaluations...... 25 Carlton Fire & Ambulance Department ...... 27 Cloquet Fire Department ...... 41 Cromwell Fire and Ambulance Service...... 64 Esko Fire Department...... 80 Kettle River Volunteer Fire Department ...... 94 Mahtowa Fire Department ...... 104 Mercy Hospital Ambulance Service ...... 113 Moose Lake Fire Department ...... 120 Perch Lake Volunteer Fire Department...... 134 Scanlon Fire and Rescue ...... 144 Wrenshall Fire Department...... 154 Wright Volunteer Fire Department ...... 166 Barnum Fire Department (no field visit) ...... 176 Blackhoof Fire Department (no field visit) ...... 181 Section II - System Demand Projections...... 187 Community Growth Potential ...... 187 Service Demand Projections ...... 191 Community Risk Analysis ...... 192 Service Planning Delivery Zones...... 194 Section III - Future Delivery System Models ...... 201 Critical Issues...... 201 Future Organizational Strategy Options...... 207 Section IV - Recommendations...... 225 Appendix ...... 231 Apparatus Condition Chart ...... 231 Fire and Emergency Medical Events Dynamics...... 233
i Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Table of Figures
Figure 1: Carlton County Emergency Services Facilities ...... 10 Figure 2: Carlton County Fire Jurisdictional Response Boundaries...... 11 Figure 3: Carlton County EMS Jurisdictional Response Boundaries ...... 12 Figure 4: Carlton County Population Density...... 13 Figure 5: Service Demand Density for Carlton County - 2005 ...... 14 Figure 6: Structure Fire Incidents in Carlton County - 2005...... 15 Figure 7: Carlton County Comparison of Incident Rates by Population ...... 16 Figure 8: Carlton County Fires Per 1,000 Population ...... 17 Figure 9: Carlton County Workload History 2004 - 2005 ...... 17 Figure 10: Carlton County Workload by Time of Day ...... 18 Figure 11: Carlton County Workload by Day of Week ...... 19 Figure 12: Carlton County Workload by Month of Year ...... 20 Figure 13: Carlton County Workload by Agency...... 21 Figure 14: Fire Department Modeled Travel Time Capabilities...... 23 Figure 15: EMS Agency Modeled Travel Time Capabilities...... 24 Figure 16: Carlton Fire & Ambulance Current Station Deployment...... 32 Figure 17: Carlton Fire & Ambulance Workload History 2004 - 2005...... 33 Figure 18: Carlton Fire Workload by Time of Day...... 34 Figure 19: Carlton Ambulance Workload by Time of Day ...... 35 Figure 20: Carlton Fire Workload by Day of Week ...... 36 Figure 21: Carlton Ambulance Workload by Day of Week...... 36 Figure 22: Carlton Fire Workload by Month of Year ...... 37 Figure 23: Carlton Ambulance Workload by Month of Year...... 38 Figure 24: Carlton Fire & Ambulance Response Time Performance ...... 39 Figure 25: Cloquet Organizational Structure ...... 42 Figure 26: Cloquet Revenues...... 44 Figure 27: Cloquet Budget Summaries ...... 44 Figure 28: Cloquet Annual Overtime Expenditures...... 49 Figure 29: Cloquet Rotating Shift Staffing ...... 49 Figure 30: Cloquet Minimum Apparatus Staffing ...... 50 Figure 31: Cloquet Fire Response Summary ...... 51 Figure 32: Cloquet Ambulance Response Summary...... 51 Figure 33: Cloquet Standard of Coverage...... 52 Figure 34: Cloquet Current Station Deployment...... 53 Figure 35: Cloquet Workload History 2004 - 2005...... 54 Figure 36: Cloquet Fire Workload by Time of Day...... 55 Figure 37: Cloquet Ambulance Workload by Time of Day ...... 56 Figure 38: Cloquet Fire Workload by Day of Week...... 57 Figure 39: Cloquet Ambulance Workload by Day of Week ...... 57 Figure 40: Cloquet Fire Workload by Month of Year...... 58 Figure 41: Cloquet Ambulance Workload by Month of Year ...... 58 Figure 42: Cloquet Response Time Performance...... 59 Figure 43: Cloquet Fire Training Topics/Hours 2004 ...... 61 Figure 44: Cloquet EMS Training Topics/Hours 2004...... 62 Figure 45: Cromwell Operations Organizational Structure...... 65 Figure 46: Cromwell Annual Income & Expenditures ...... 67 Figure 47: CFAS Response Workload ...... 71 ii Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Figure 48: CFAS Current Station Deployment...... 72 Figure 49: Cromwell Workload History, 2004 - 2005 ...... 73 Figure 50: Cromwell Fire Workload by Time of Day ...... 74 Figure 51: Cromwell Ambulance Workload by Time of Day...... 75 Figure 52: Cromwell Fire Workload by Day of Week ...... 76 Figure 53: Cromwell Ambulance Workload by Day of Week...... 76 Figure 54: Cromwell Fire Workload by Month of Year ...... 77 Figure 55: Cromwell Ambulance Workload by Month of Year...... 77 Figure 56: CFAS Training Topics for 2005 - 2006 ...... 78 Figure 57: CFAS Membership Training Statistics CY1999, 2003, & 2004 ...... 79 Figure 58: Esko Organizational Chart ...... 81 Figure 59: Esko Budget History...... 82 Figure 60: Esko CY2006 Tax Levy...... 82 Figure 61: Esko Fire Department Membership...... 86 Figure 62: EFD Six Year Response Summary ...... 87 Figure 63: Esko/Thomson Fire Department Current Station Deployment ...... 88 Figure 64: Esko/Thomson Fire Workload by Activity ...... 89 Figure 65: Esko/Thomson Fire Workload by Time of Day ...... 90 Figure 66: Esko/Thomson FD Workload by Day of Week...... 91 Figure 67: Esko/Thomson FD Workload by Month of Year...... 91 Figure 68: Esko Fire Department Training Certifications ...... 92 Figure 69: Kettle River VFD Current Station Deployment...... 100 Figure 70: Kettle River VFD Workload by Activity Type...... 101 Figure 71: Kettle River VFD Workload by Time of Day...... 102 Figure 72: Kettle River VFD Workload by Day of Week...... 102 Figure 73: Kettle River VFD Workload by Month of Year...... 103 Figure 74: Mahtowa FD Chain of Command ...... 105 Figure 75: Mahtowa FD Current Station Deployment ...... 108 Figure 76: Mahtowa FD Workload by Activity Type 2004-2005 ...... 109 Figure 77: Mahtowa FD Workload by Time of Day ...... 109 Figure 78: Mahtowa FD Workload by Day of Week...... 110 Figure 79: Mahtowa FD Workload by Month of Year...... 110 Figure 80: Mercy Ambulance Workload History, 2004-2005...... 117 Figure 81: Mercy Ambulance Workload by Time of Day...... 118 Figure 82: Mercy Ambulance Workload by Day of Week...... 119 Figure 83: Mercy Ambulance Workload by Month of Year...... 119 Figure 84: Moose Lake Operations Organizational Structure ...... 121 Figure 85: Moose Lake Budget Summaries ...... 123 Figure 86: Moose Lake Response Summary ...... 127 Figure 87: Moose Lake Current Station Deployment...... 128 Figure 88: Moose Lake Workload History 2004-2005...... 129 Figure 89: Moose Lake Workload by Activity Type, 2004-2005...... 129 Figure 90: Moose Lake Workload by Time of Day...... 130 Figure 91: Moose Lake Workload by Day of Week...... 130 Figure 92: Moose Lake Workload by Month of Year...... 131 Figure 93: Moose Lake Training Topics ...... 132 Figure 94: Perch Lake Current Station Deployment ...... 139 Figure 95: Perch Lake Workload History 2004-2005 ...... 140 Figure 96: Perch Lake Workload by Activity Type, 2004 - 2005 ...... 140 Figure 97: Perch Lake Workload by Time of Day ...... 141
iii Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Figure 98: Perch Lake Workload by Day of Week ...... 142 Figure 99: Perch Lake Workload by Month of Year ...... 142 Figure 100: Scanlon Fire & Rescue Current Station Deployment ...... 149 Figure 101: SF&R Workload History, 2004 - 2005...... 150 Figure 102: Scanlon Fire Workload by Activity Type, 2004 - 2005...... 150 Figure 103: Scanlon Fire & Rescue Workload by Time of Day...... 151 Figure 104: Scanlon Fire & Rescue Workload by Day of Week...... 152 Figure 105: Scanlon Fire & Rescue Workload by Month of Year...... 152 Figure 106: Wrenshall FD Operations Organizational Structure ...... 155 Figure 107: Wrenshall FD Budget Summaries ...... 156 Figure 108: Wrenshall Annual Response Summary ...... 160 Figure 109: Wrenshall Fire Department Current Station Deployment...... 161 Figure 110: Wrenshall FD Workload History 2004 - 2005...... 162 Figure 111: Wrenshall FD Workload by Activity Type 2004 - 2005...... 162 Figure 112: Wrenshall FD Workload by Time of Day...... 163 Figure 113: Wrenshall FD Workload by Day of Week...... 163 Figure 114: Wrenshall FD Workload by Month of Year...... 164 Figure 115: Wrenshall FD Training Topics For 2005 ...... 165 Figure 116: Wright VFD Current Station Deployment...... 171 Figure 117: Wright VFD Workload History, 2004 - 2005...... 172 Figure 118: Wright FD Workload by Activity Type, 2004 - 2005 ...... 172 Figure 119: Wright FD Workload by Time of Day ...... 173 Figure 120: Wright FD Workload by Day of Week ...... 174 Figure 121: Wright VFD Workload by Month of Year...... 174 Figure 122: Barnum FD Current Station Deployment ...... 177 Figure 123: Barnum FD Workload History, 2004-2005 ...... 178 Figure 124: Barnum FD Workload by Activity Type 2004 - 2005 ...... 178 Figure 125: Barnum FD Workload by Time of Day ...... 179 Figure 126: Barnum FD Workload by Day of Week...... 180 Figure 127: Barnum FD Workload by Month of Year...... 180 Figure 128: Blackhoof Fire Department Current Station Deployment ...... 182 Figure 129: Blackhoof FD Workload History, 2004-2005...... 183 Figure 130: Blackhoof FD Workload by Activity Type 2004 - 2005 ...... 183 Figure 131: Blackhoof FD Workload by Time of Day...... 184 Figure 132: Blackhoof FD Workload by Day of Week...... 184 Figure 133: Blackhoof FD Workload by Month of Year...... 185 Figure 134: Carlton County Population Growth History ...... 187 Figure 135: Carlton County Population by Age...... 188 Figure 136: Carlton County Housing by Occupancy...... 189 Figure 137: Census-based Population Forecast...... 190 Figure 138: Development-based Population Forecast...... 191 Figure 139: Workload Projection by Type and Year ...... 192 Figure 140: Community Risk Assessment...... 193 Figure 141: Carlton County Service Planning Delivery Zones ...... 195 Figure 142: Carlton County Service Delivery Zones Map ...... 196 Figure 143: Service Delivery Planning Zones and Current Engine Co. Deployment...... 198 Figure 144: Service Delivery Planning Zones and Current Ambulance Deployment...... 199 Figure 145: Proposed ALS Zones ...... 209 Figure 146: Northeast Carlton County Unified District Strategy...... 218 Figure 147: Minimum Operational Staffing Based on Level of Risk ...... 220 iv Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Figure 148: CFAI/Cloquet FD Critical Task Minimum Staffing Comparison ...... 222 Figure 149: Fire Growth vs. Reflex Time...... 234 Figure 150: National Data - Fire Growth to Life and Property Loss...... 236 Figure 151: Cardiac Arrest Event Sequence ...... 237
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vi Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Executive Summary
Purpose of this Report This report details the study of fire protection and emergency medical services in Carlton County, Minnesota (County). Specifically, the study involves the fire department, ambulance providers, and medical first responder agencies that operate within the borders of the County and its municipalities. The first section of the report provides a general description and evaluation of each agency, its management, assets, operations, and service delivery. The second section identifies the anticipated changes in the population, risk factors, and service demand that will be faced by Carlton County’s emergency service agencies in the future. The final two sections provide feasible strategies for changes to the system that Emergency Services Consulting inc. (ESCi) believes will be necessary to achieve the levels of performance appropriate for the community.
Staff members from Carlton County, the municipalities, and the individual agencies have provided a great deal of written and verbal information to us. Many of the staff members have been generous in their effort to provide us with accurate and complete information. We are grateful for their able assistance and cooperation throughout this process.
ESCi recognizes that information, by its very nature, is often incomplete as it changes from moment to moment. Every effort has been made to compile data that is as comprehensive and as accurate as possible. The information gathering process included a broad evaluation checklist of each organization, measuring results against acceptable industry standards and good practices. Whenever possible, ESCi made quantifiable comparisons to other fire service organizations. Checklists and documentation are followed up by one-on-one interviews with key staff members from the agencies, County, or municipality.
Section I The section provides a general overview of the agencies and describes governance, management components, staffing systems, current resource deployment and, where possible, service delivery performance. The agencies’ facilities and apparatus were inventoried, reviewed, and evaluated.
The fire protection systems in Carlton County developed in staggered timelines. As their communities grew, the municipalities, or the citizens in rural townships, developed their own fire
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protection systems in an effort to protect their citizens and their economic base. Simultaneous to the development of the fire service delivery systems as described above, improvements in the delivery of emergency medical services (EMS) also occurred. Today, EMS transport services are provided from four services located in Carlton Fire Department, Cloquet Fire Department, Cromwell Fire Department, and at Mercy Hospital in Moose Lake. In 1997, the Cloquet Fire Department service moved to providing advanced life support capability using certified paramedics, and Mercy Hospital is currently providing similar advanced life support service on a part-time basis.
Carlton County has experienced an increasing number of fire department responses. In comparison to other communities of its size, Carlton County is well above the median range of incident volume per population for similar communities. Although actual fire incidents and other type responses have remained relatively stable over the past two years, emergency medical service calls have increased over nine percent.
The evaluation found the various departments operating with an expected level of effectiveness. One or more facilities were identified as in only fair to poor condition, and not all were capable of 24-hour staffing in the event a community disaster made that necessary. Front-line apparatus were generally found to be in good condition and well-suited to its applicable use.
The analysis of system-wide performance and outcomes reveals that the system is not capable of providing consistent levels of effective service, particularly in critical life-threatening medical emergencies, based on resource allocation and location, manpower and staffing constraints, lack of system-wide planning and coordination, and inadequate EMS system funding.
Section II In this section, ESCi created the population and service demand projections necessary for the creation of future improvement strategies. The section includes a review of population forecasts indicating continued community growth. Service demand is expected to climb to almost 3,000 incidents by the year 2024.
A community risk analysis, based on occupancy types and density, is provided along with a graphical representation of the countywide analysis. As with population forecasts, the community risk analysis is another building block on which the future strategies are based.
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In addition, land use and population densities in the County are utilized to create a map of emergency services planning zones. The planning zones are broken down by urban, suburban, and rural levels, and will permit the community to consider levels of service delivery that are commensurate with the types of occupancies and risks that are present. Service objectives regarding staffing levels and response times from the National Fire Protection Association 1720: Standard for the Organization and Deployment of Fire Suppression Operations, Emergency Medical Operations and Special Operations to the Public by Volunteer Fire Departments can be used in conjunction with these planning zones to monitor system performance.
Section III This section of the report will explain the critical issues ESCi’s analysis identified, and provides solid, strategy options that Carlton County and its service providers can consider for the future. Through interviews with system stakeholders, direct observation, system capability modeling, and statistical analysis, ESCi has identified the following issues as being the most critical to the future ability of Carlton County and its individual municipalities to provide effective emergency services to its citizens.
Advanced Life Support Deployment As a result of the EMS system’s current state, even when appropriate to medical need, paramedic- level advanced life support (ALS) services are not consistently provided for response to all citizens, and services are not consistently distributed geographically to both the eastern and western portions of the County on a 24-hour basis.
EMS System Funding Funding for the provision of emergency medical services is fractured and inconsistent. The four ambulance services are funded by a combination of local property taxes and service fees. Cromwell’s system is supported by a local ambulance district tax, as well as other municipal support, along with the revenue generated by its ambulance service fees. In similar fashion, Mercy Hospital derives funds primarily from a hospital district tax and ambulance service fees. Both Carlton and Cloquet ambulance services are funded as a part of their fire department budget, derived primarily through city property taxes and ambulance fee revenues. The lack of significant, centralized financing of the EMS system within Carlton County naturally leads to a lack of cohesive, centralized planning and system development.
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Those communities that do not provide ambulance service, or are not in a tax district that does, do not currently participate in funding the availability of the service they receive from their assigned provider. In those areas, the system essentially relies on the service fees generated from patient transports to offset the cost of providing the service. It has been demonstrated that service fee revenue is typically far less than the cost of making the service available. As a result, those areas that are not participating as service providers or are not in a service provider’s tax district, are directly benefiting from the budget subsidies provided by the property taxes of the those that are.
Emergency Services Redundancy and Overlap in Growth Areas The growth areas in the northeastern part of the County also correspond with the areas of most significant overlap between the response capability of the four fire departments in Cloquet, Carlton, Scanlon, and Esko. These four agencies are more densely spaced than any other agencies in the County. While this can be a benefit in terms of the concentration of available resources, the fact that the four agencies are independent of one another can lead to an overall lack of coordination, limited resource sharing, and ineffective regional planning.
Fire and EMS Staffing There are signs of inadequate staffing within the emergency services of Carlton County. Most obvious is the lack of 24-hour paramedic staffing in the Mercy Hospital Ambulance Service. This is occurring because the agency can only provide ALS services when a paramedic is on-duty. When a paramedic is not on-duty, the agency can provide services at a basic life support (BLS) or Intermediate level only. The agency employs two paramedics at this time, making it impossible to cover 24-hour staffing.
Even though 24-hour paramedic staffing is available in the Cloquet Fire Department, that agency is also not exempt from staffing issues; ambulance responses pull away from the on-duty fire suppression capability of the department. This is occurring more and more often as ALS responses across the county increase.
While Cromwell reported relatively few problems with ambulance staffing, Carlton reports that ambulance response is sometimes delayed for unreasonable periods while the unit waits for an on- call responder to arrive. According to interviews, the problem has worsened as call volume has increased.
4 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
After identification of the critical issues facing emergency services in Carlton County, ESCi developed the following strategies that could be implemented to provide improvement in effectiveness, consistency, or coordination.
Option One: Provide EMS Funding Stability through a Countywide Tax The primary purpose of this option, including any of its alternative forms described, is to provide centralized responsibility and authority for the design and implementation of an effective emergency medical services system, appropriate to the risks and demand, to all areas of Carlton County, and to permit that system to have consistent, fair, and reasonable funding support without depending solely on user fees.
Option Two: Countywide ALS Provision through Current ALS Providers Considering current population density, demand for services and the ALS call load countywide, Carlton County could greatly enhance its ALS transport and service delivery system by fully supporting two strategically located ALS transport units. In order to accomplish this, a system will need to be put in place to ensure that the two existing ALS providers are able to provide paramedic level response on a 24-hour basis.
Option Three: Countywide ALS Provision through All Four Current EMS Transport Providers This particular option would involve staffing all four transport organizations with ALS certified (paramedic) personnel on a 24/7/365 basis. This could be accomplished through a complement of volunteer and/or career staff depending upon the respective organization. The ALS certified (paramedic) personnel would work and/or participate under the auspices and funding of their respective organization. Appropriate agreements and/or mutual aid arrangements would be addressed countywide.
5 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Option Four: Countywide ALS Provision through Competitive Bid Provision of countywide ALS services through competitive bid or contract would involve a third service approach to advanced life support. This approach has been implemented by a number of jurisdictions nationwide.
Option Five: Countywide ALS Provision through a County Agency The provision of countywide ALS services through a county agency would require the development and implementation of a either a completely new county EMS agency, or a new division of an existing county agency. Three logical alternatives surface when considering this strategy; establishing an autonomous Carlton County EMS agency, establishing an EMS Division of the County Emergency Management Department, or establishing an EMS Division of the Carlton County Sheriff’s Office.
Option Six: Expansion of Automatic Aid in Northeast Carlton County The expansion of a formal fire and EMS automatic aid arrangement between the four agencies could facilitate dispatching of the units closest to the incident, reduce response times, encourage a standardized operational relationship between the organizations, enhance safety, and initiate an integrated chain of command.
Option Seven: Consolidation of Services in Northeast Carlton County The four agencies could consider a form of consolidation or merger. While there are a number of consolidation/merger methodologies, the agencies involved could assess three general approaches or strategies and apply local requirements and issues as required. The three general approaches are detailed in the report section.
Option Eight: Additional Staffing for Fire and EMS The membership of most of the volunteer fire departments in Carlton County is limited to approximately 20-30 individuals. This is primarily driven by their relief fund arrangements, rather than the actual number of individual necessary to ensure adequate manpower availability on a 24- hour basis. The answer to increasing the expectation of sufficient numbers of volunteer members being available for initial response is the recruitment and retention of greater numbers of members.
On the career side, by all standards, the Cloquet Fire Department is understaffed. The department actually has more in-service, front line apparatus than the number of on-duty personnel available to
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drive them from the station. Considering a dwelling fire (moderate risk) in the City of Cloquet, the Cloquet Fire Department is capable of providing approximately 31 percent of the staffing associated with the critical tasks that would be necessary at such a fire. The department must depend on nine off-duty personnel to respond within the first few moments of dispatch in order to have sufficient staff on scene to conduct safe and effective operations at a moderate risk structure fire. Hiring 38 individuals to increase the fire department on-duty staff by nine firefighters would represent a salary and wage cost of $2,228,730.40 per year, plus associated expenses. As an alternative, the city could incrementally increase on-duty career staffing, support changes in the EMS system to decrease the impact of EMS responses to its fire protection resources, improve relationships with surrounding agencies to increase early automatic aid response, and shore up its off-duty call back system for employees.
Section IV The task of this study was to examine the current conditions for fire and emergency medical services in Carlton County, project future growth in community risk and service demand, identify the critical issues the system will face in meeting the future challenge, and recommend options for improvement.
Eight significant options were presented to permit the reader to understand that there may be multiple ways to address certain critical issues and that each alternative was considered and weighed carefully. In Section IV, ESCi presents those options that our evaluation considers to be most likely to succeed, and most likely to have a positive effect.
After careful analysis of the critical issues facing Carlton County, Emergency Services Consulting inc. recommends the implementation of the following options at this time: • Option One: Provide EMS Funding Stability through a Countywide Tax • Option Two: Countywide ALS Provision through Current ALS Providers • Option Six: Expansion of Automatic Aid in Northeast Carlton County • Option Eight: Additional Staffing for Fire and EMS
Section IV of the report provides more details and discussion of the nature of ESCi’s recommendations and expands on the initial presentation of the options as found in Section III.
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Section I - Current System Analysis
History and Development Carlton County is located in the northern section of the State of Minnesota, just 25 miles south of Duluth. Carlton County (County) compasses 860 square miles and includes a population of 33,639. The County is bisected by Interstate 35, a major north-south corridor through the state. Additional state and county highways provide access between most municipalities. The topography is relatively flat and consists of agricultural fields and undeveloped wildland areas outside the developed municipalities and rural communities.
The fire protection systems in Carlton County developed in staggered timelines. As their communities grew, the municipalities or the citizens in rural townships developed their own fire protection systems in an effort to protect their citizens and their economic base.
Simultaneous to the development of the fire service delivery systems as described above, improvements in the delivery of emergency medical services (EMS) also occurred. Today, EMS transport services are provided from four services, located in Carlton Fire Department, Cloquet Fire Department, Cromwell Fire Department, and at Mercy Hospital in Moose Lake. During the past several years, the Cloquet Fire Department service moved to providing advanced life support (ALS) capability using certified paramedics, and Mercy Hospital is currently providing similar ALS service on a part-time basis.
Throughout the variations in service agreements and contracts, the emergency service agencies have developed, and continue to maintain, a rich tradition of mutual assistance that permits increased efficiency and effectiveness of the entire emergency services delivery system.
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System Overview Carlton County is provided fire protection services from thirteen fire departments located within the County and one agency located in an adjacent county. Emergency medical services are provided from three of the fire departments, along with one location at Mercy Hospital in Moose Lake.
Resource Distribution The following map depicts the location of all emergency service facilities within Carlton County.
Figure 1: Carlton County Emergency Services Facilities
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Each of the fire departments has a prescribed jurisdiction to which they provide initial, or first-due, response. In most cases, these jurisdictions have been assigned by way of agreement with the municipality or municipalities served, including the townships. The following map depicts the jurisdictional response boundaries of the various fire agencies.
Figure 2: Carlton County Fire Jurisdictional Response Boundaries
There is one response jurisdiction in the southeast corner of the County served by an adjoining fire district and, thus, it contains no fire station. In addition, the Scanlon Fire Department serves only the area bounded by its city limits, which can be seen in gold outline on the map.
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In similar fashion, each EMS transport agency has a prescribed jurisdiction to which they provide initial, or first-due, ambulance response. In most cases, these jurisdictions have been assigned by Carlton County, with general agreement between the EMS agencies themselves. The following map depicts the jurisdictional response boundaries of the various EMS agencies.
Figure 3: Carlton County EMS Jurisdictional Response Boundaries
It can be seen from these response zone maps, that many of the fire and EMS stations are not necessarily centrally located within their response jurisdictions. However, most are located in the areas of highest population densities. In order to evaluate this more readily, the following map provides a depiction of the population density for all of Carlton County. Information is from the 2000 U.S. Census.
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Figure 4: Carlton County Population Density
Service Demand In order to properly evaluate the distribution of facilities and resources, it is also important to understand the distribution of emergency incidents, or service demand, across Carlton County. It is an established fact the variations in land use, population density, and other risk factors affect the number of emergency calls any given geographic area will generate. Thus, the study of service demand distribution is important in evaluating the effectiveness of any given service delivery system.
In order to do this, incident data is fed in geographic information system (GIS) software to establish its location on a map. In the case of Carlton County, the data was obtained from the communications center’s records, and manually cleaned for errors and address corrections. The
13 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
following map depicts the relative density of call volume (service demand) throughout the County for fire and emergency medical incidents.
Figure 5: Service Demand Density for Carlton County - 2005
In addition to examining service demand for all types of calls, it is also useful to review the distribution of actual structure fire incidents, since these are among the most resource-intensive types of calls. The following map depicts the location of structure fire incidents for 2005 1.
1 Calls shown represent incidents dispatched as structure fires. The actual type of situation found may not have been a structure fire.
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Figure 6: Structure Fire Incidents in Carlton County - 2005
Further examination of service demand includes workload, temporal, and response performance analyses. Before examining each agency providing service within Carlton County, statistics for the County as a whole are examined.
Emergency Response Activity Carlton County has experienced an increasing number of fire department responses. In comparison to other communities of its size within the North Central region 2, the Carlton County fire departments experience a much higher number of emergency incident responses based on
2 Data source for this section is the National Fire Protection Association U.S. Fire Department Profile , October 2003. This publication breaks down benchmark data into four regions: Northeast, North Central, South, and West. North Central regional data was selected for this report.
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population. The following figure shows that Carlton County is over 50% higher than the median range of incident volume per population for similar communities.
Figure 7: Carlton County Comparison of Incident Rates by Population
Comparison of Incidents per 1,000 Population 250.000
200.000 163.370 150.000
84.600 100.000 70.020 75.954 55.420 48.136 50.000
0.000
e ty ge an nge i ang un R Ra h Range Med gh Ran ow g ton Co L nal rl l Hi a gio an Hi ural Low e Ca b rban R R Ur U Rur
However, it should be remembered that the statistics include many communities that do not provide any type of emergency medical services through their fire departments. This factor should be considered when evaluating the benchmark comparison data.
As can be seen in the following figure, Carlton County experiences a higher number of fires per 1,000 population for a community of its size.
16 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Figure 8: Carlton County Fires Per 1,000 Population
Comparison of Fires per 1,000 Population 15.0
11.2
10.0 7.8
4.8 4.8 5.0 3.8 3.3
0.0
e e e e n ty g g g g a n n n n n di u a a a a e o R R R R M C h w h w l n ig o ig o a to L L n rl H l H l io a n n a a g a ba r ur e C rb r u R R U U R
The following figures show how response volume has changed over the past two years and give an overview of the County’s workload history.
Figure 9: Carlton County Workload History 2004 - 2005
Two-year Workload History 2500 Fire 2000 EMS Other 1500
1000
500
0 2004 2005 Fire 331 262 EMS 1878 2054 Other 226 239
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Although actual fire incidents and other type responses have remained relatively stable over the past two years, EMS calls have increased over nine percent. As the communities increase in population, and if composition of the population continues to age, Carlton County could expect these increases in EMS calls to continue. This will be examined fully in Section II.
In the following paragraphs, ESCi provides further analysis of the County’s workload.
A review of incidents by time of occurrence reveals when the greatest response demand is occurring. The following charts show how activity and demand changes for Carlton County based on time of day, day of week, and month of year.
Figure 10: Carlton County Workload by Time of Day
Carlton County, MN: Fire & EMS Workload by Time of Day, 2004-2005
350
300
250
200
150
100
50
0
0100 0200 0300 0400 0500 0600 0700 0800 0900 1000 1100 OON 1300 1400 1500 1600 1700 1800 1900 2000 2100 2200 2300 NITE N MID
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Peak response activity occurs between the hours of 8:00am and 8:00pm. This is typical of most fire agencies’ experience, and reflects a higher level of activity in the community throughout the workday hours.
Incident volumes are relatively even throughout the days of the week, with only a slight increase toward week’s end.
Figure 11: Carlton County Workload by Day of Week
Carlton County, MN: Fire & EMS Workload By Day of Week, 2004-2005
900
800
700
600
500
400
300
200
100
0 SUN MON TUE WED THU FRI SAT
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Incident volumes are relatively uneven throughout the months of the year, as shown in the following figure, given the increases in service demand in April, July, and September as well as a slight overall decrease in November and December.
Figure 12: Carlton County Workload by Month of Year
Carlton County, MN: Fire & EMS Workload By Month of Year, 2004-2005
500
450
400
350
300
250
200
150
100
50
0 JAN FEB MAR APR MAY JUN JUL AUG SEP OCT NOV DEC
20 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
The following figure illustrates the workload level by agency within the County. You can see the correlations between workload and population densities. Whereby, the higher population densities and agencies which operate EMS apparatus have higher workloads. 3
Figure 13: Carlton County Workload by Agency
Carlton County, MN; Fire & EMS Workload by Agency, 2004-2005
35.00%
30.00%
25.00%
20.00%
15.00%
10.00%
5.00%
0.00% FDL Fire Wright Fire Carlton Fire Mercy Amb. Cloquet Fire Barnum Fire Scanlon Fire Carlton Amb. Mahtowa Fire Cloquet Amb. Cromwell Fire Moose Lk Fire Kettle Rvr Fire Wrenshall Fire Blackhoof Fire Cromwell Amb. Perch Lake Fire Esko/Thomson Fire
Travel Time Capability/Resource Concentration In order to evaluate the relative capability of the current emergency services delivery system, it is important to review the facility distribution in terms of its ability to respond to the risk and demand in a timely fashion.
3 FDL Fire - Fond du Lac Fire Department is a seasonal, woodland response unit operated within the Indian Reservation. It is shown as a part of the whole County workload in this chart, but FDL Fire will not be examined individually in this report due to its non-structural operating nature. The Fond du Lac Reservation is planning to conduct a comprehensive study of the fire protection capabilities and needs specifically for the reservation and its potential growth later this year.
21 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
The ultimate goal of any emergency service delivery system is to provide sufficient resources (personnel, apparatus, and equipment) to the scene of an emergency in time to take effective action to minimize the impacts of the emergency. This need applies to fires, medical emergencies, and any other emergency situation to which the fire department responds.
ESCi has provided additional information in the Appendix regarding the dynamics of fire and medical emergencies, and how those dynamics affect incident outcomes. An understanding of the dynamics of emergencies is essential to the proper selection of performance objectives and analysis of performance.
Carlton County Response Time Capabilities Sufficient data was not available to fully evaluate and analyze the response time performance of all of the fire departments in Carlton County. The exceptions were Carlton Fire Department and Cloquet Fire Department. Both of these agencies were able to provide electronic incident data, and a temporal analysis of actual recorded, response times is provided in their individual agency evaluation sections.
However, even without recorded incident data, ESCi can project response time capability of an emergency service system by using computer modeled travel time from each facility on the actual roadway network. Since all but one of the fire departments in Carlton County depend heavily on the use of volunteers, it is difficult to project turnout time of the departments, or how long it will take for an adequate number of volunteers to assemble and leave the station on an apparatus. Still, the following travel time model can be of some use in evaluating the current deployment, as well as the assignment of first-due response territories.
22 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Figure 14: Fire Department Modeled Travel Time Capabilities
The map indicates that response jurisdictions have, for the most part, been adjusted to compensate for response time capabilities. It is also worth noting that the greatest amount of resource concentration is in the area in and around the City of Cloquet. Additional discussion on this issue, in relation to future strategies, will appear in later sections of the report.
23 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
The following map depicts similar information for the EMS transport agencies.
Figure 15: EMS Agency Modeled Travel Time Capabilities
From the map, it would appear that little, appreciable improvement could be seen by changing the response boundaries for the EMS agencies based solely on facility location. However, it is important to remember that the map depicts travel time only. In the case of Cloquet and Carlton, it should be remembered that the Carlton agency must wait for a turnout of volunteers during most hours of the day, resulting in extended turnout times. The Cloquet unit is fully staffed and should see turnout times in the one-minute range on a fairly routine basis.
24 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Individual Agency Evaluations
The following sections are intended to provide a summary of each of the fourteen agencies involved in the provision of emergency services to the municipalities and unincorporated areas of Carlton County.
It is important to note that the level of cooperation and participation in this study varied greatly from agency to agency. Two agencies did not participate - Barnum Fire Department and Blackhoof Fire Department. Due to the variation in participation and provision of data, there are limitations to the amount of information and analysis that is available for many of the agencies in the study.
Each agency has been provided its own report section. Within each, an overview of the organizational structure and governance of the agency is provided, along with information on financing, staffing, service delivery methods and current deployment. In addition, this chapter provides an exhaustive inventory, description, and general condition rating of each fire protection infrastructure (facilities and major apparatus) in the agencies.
While this study was not intended to be a full agency evaluation of the departments, it includes general observations and an adequate overview of the organizations sufficient to provide the reader with a general understanding and knowledge of the fire protection and emergency medical delivery system currently in place throughout Carlton County. Obviously, the larger departments require more extensive descriptions and information in order to convey the status of their operations.
Throughout these organizational summaries, certain common procedures and analysis are used to provide information useful in benchmarking or comparing features of the agencies studied. The following standard conventions are used in these sections:
Apparatus Condition Assessments The evaluation of existing apparatus was conducted in accordance with a standardized set of assessment ratings used by ESCi. The definitions of these condition assessment ratings may be found in the Appendix.
25 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Current Station Deployment Maps are provided for each agency that display the specific geographic area served by that agency as primary responder and the location of the station within that area. In order to provide a basis for the reader to assess relative distribution, ESCi has plotted modeled travel time from each facility using color-coded shading. Each map is accompanied by an explanation of the shading and travel times used in that map. Travel time reflects driving time only, and is not intended as a display of actual response time. Travel time is modeled using GIS software and calculates the total time necessary to travel each individual street segment, based on the average travel speed that is assigned to the segment. Travel speeds are assigned based on road type and condition. There are a total of 42 different road type classifications, from footpaths to limited-access freeways.
Department summaries are presented in alphabetical order, except in the case of the non- participating agencies.
26 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Carlton Fire & Ambulance Department
General Description The Carlton Fire & Ambulance Department (Carlton F&A) functions as a volunteer fire association and operates as a department within the city of Carlton. Carlton F&A was formed under the laws of the State of Minnesota (Statute 412.221, subd. 17), and granted authority to provide fire and emergency medical services as part of their mission. The department’s jurisdiction encompasses the entire city of Carlton and through contract; the townships of Twin Lake, Sawyer, and the City of Thomson. Additionally, Carlton F&A has a contract with Black Bear Casino to provide their fire protection. The response area includes small city development, suburban neighborhoods, and light industrial, as well as a large portion of rural property.
The department’s services are provided from one station located within the city of Carlton in Carlton County. Currently, the department has an ISO rating of Class 6 within five road miles of the Carlton fire station, and within 1,000 feet (ft.) of a public fire hydrant. A Class 9 will be applied to properties within five road miles of the Carlton fire station, but beyond 1,000 ft. of a public fire hydrant. The department has access to pressurized hydrants only within city limits.
The department maintains a fleet of vehicles including two fire engines, two medic units, one tender, and one wildland vehicle. The department also houses a County-owned SCBA 4 trailer.
There are currently 19 individuals involved in delivering services to the jurisdiction. The department has a paid chief and 18 line volunteer personnel. Of the roster of employees, 19 are assigned to the operations division. The department has a maximum limit of 25 volunteers. The primary staffing coverage for all emergency response is provided by volunteers. Volunteers are on an on-call basis, and participate in the delivery system as their schedules permit. In addition to the Carlton volunteers, the organization has access to the County mutual aid system.
Structure and Governance The organization’s authority to provide service is gained through city charter and from the State of Minnesota. The fire chief is hired by city administration and the City Council. Authority of the fire chief is clearly defined by city policies. The fire chief, as a member of the selection committee
4 SCBA: self-contained breathing apparatus.
27 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
comprised of a member of the city administration and volunteer officers, shall determine qualifications of fire fighters through interview, and shall be empowered to accept volunteers. The fire chief has full authority to expel or terminate volunteers in accordance with the by-laws.
Acceptable financial controls are in place. Unity of command is defined, and everyone reports to the fire chief through their respective officer. The operating division uses a top-down hierarchy with one division defined, that being emergency delivery. Department programs are not defined. Formal job descriptions are in the process of being developed at this time. Carlton volunteers are governed by their by-laws - Relief Association By-laws and the Standard Operating Procedures (SOPs) manual. The chief’s span of control is very manageable. Minimal planning elements are in place. An organizational vision has not been established, nor has a mission statement has been adopted. Foundational administrative policies have been adopted, reviewed for consistency; and each member is provided a copy. Critical issues and challenges have been identified. An abbreviated annual report is prepared by the fire chief and presented to the Carlton City Council. Complete training records are maintained within the organization. However, exposure records are not maintained. Fire reports are maintained and submitted to the Minnesota State Fire Marshal’s Office.
Finance The annual budget is developed and presented to the city council for approval. Once approved, the fire chief manages the budget. Acceptable financial controls are established. A spending limit has not been placed on the fire chief. There is an external audit preformed through the city. The current revenue sources consist of the general fund budget, contract fees, ambulance revenues, fund raisers, and grants. The organization has established sinking funds of $150,000 for ambulance replacement and between $100-200,000 for fire apparatus replacement. There are currently no pending grants. The organization currently does not have any long term financial obligations in the form of bonds, lease payments, or other debt. Purchasing controls are in place and monitored by the City Administrator. Purchase orders are not used.
Capital Assets and Resources As stated earlier, the Carlton Fire Department operates one fire station. This station is fairly adequate and equipped for suitable volunteer fire fighting operations. Carlton Department has the ability to conduct many different types of training exercises for firefighters. This station has no
28 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
offices for the chief or other officers. Higher ranking officers should have privacy for sensitive issues, and there seems to be shortage of separate offices.
The following evaluation and general condition assessment was conducted on the station.
Carlton Fire Station 100 4th Street Built in 1987, this two-story, 4,800 square foot facility consists of four apparatus bays. This building is serving its intended function well, but is pretty cramped due to the large amount of apparatus housed.
Any specific problems with this facility can be classified into the following seven categories.
This building has facilities for both genders on the • Design: second level. It could house full-time staff if needed. This is a concrete block building in good condition. • Construction: It has a flat roof and features a two story living area with a large apparatus bay. • There are no automatic overhead door stops Safety: present. • Environment: There is no exhaust removal system in place. • Code Compliance: No code issues noted. Working on apparatus would be tight, but there is • room to maintain small equipment. There is a Staff Facilities: shower facility for personnel, but a very limited dayroom/watch room area on the upper level. This facility is being used within its intended use • Efficiency: presently, however there is not much wiggle room for increasing future use.
The department operates numerous pieces of firefighting apparatus. The following evaluation and general condition assessment was conducted on the primary response apparatus. Definition of condition assessment ratings can be found in the Appendix.
29 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Pump Tank Meets Unit CARLTON Year Condition Seats Remarks GPM Size NFPA
Appears well E-602 1996 Excellent 1250 750 6 Yes maintained with no issues.
E-610 1980 Good 1000 750 5 No No problems noted.
T-612 2002 Excellent 1250 3000 2 Yes No problems noted.
A-601 2002 Good N/A N/A 2 Yes No problems noted.
A-609 1997 Good N/A N/A 2 Yes No problems noted.
B-616 1996 Good 100 250 6 Yes No problems noted.
Staffing Staffing is provided by 18 on-call volunteers and the fire chief. The fire chief spends 40 plus hours in the office meeting the organization’s needs. Job descriptions are currently in development for all officers.
Administrative and Support Staffing All support work is provided by current staff, as an administrative staff is non-existent.
30 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Operational Staffing The current staffing consists of 18 on-call volunteers. Volunteers are currently used within the organization to provide the delivery system. Department SOPs provide guidance for response on all calls. Typically, a minimum of four members respond on the first due piece of equipment. No turnout time has been established; nor is there a response time performance goal in place.
Service Delivery Incident Preparation and Management Pre-fire plans have not been developed for target hazards, however, training is provided on major occupancies to enhance emergency delivery. The incident command system (ICS) is used on all major incidents; and when needed, the regional system is put in place. A formal accountability system is in place and used on most major incidents. A hazardous materials team is available from the City of Duluth. The incident commander can ask for additional apparatus; however, an automatic station move-up system is not in place. The department notification system consists of voice pager and an alert siren system.
Standards of Coverage No standard of coverage had been adopted.
Emergency Medical Services The department provides basic life support medical response transport. The department’s Medical Director provides oversight for all EMS response and provides Quality Assurance (QA) for all paramedics, as applicable. The department follows the Medical Director’s approved medical protocols. Advanced life support transport is provided by Cloquet Fire Department.
31 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Deployment Strategy / Response Time Capabilities Carlton Fire & Ambulance Department maintains one fire station within its response area. The following map displays the primary response area of the agency, as well as station location. In addition, shaded polygons demonstrate those areas within a four-, six-, and eight-minute travel time of the station (does not include turnout time). Non-shaded areas are beyond an eight-minute travel time.
Figure 16: Carlton Fire & Ambulance Current Station Deployment
32 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Response Time Performance The department provides a variety of services including fire suppression, victim rescue, BLS emergency medical response and transport, first responder-level hazardous materials response, and limited public fire safety education. The department received an average of 513 calls for service in the past five years. In 2005, approximately 87.5 percent of the calls for service were of a medical nature, while only 12.5 percent were fire or service related.
Carlton Fire and Ambulance Department does not utilize records management software that is compliant with the National Fire Incident Reporting System (NFIRS). However, the agency does enter incident data into an electronic database from which analysis is possible.
Figure 17: Carlton Fire & Ambulance Workload History 2004 - 2005
Two-Year Workload History
400 EMS 300 Fire 200
100
0 2004 2005 EMS 312 328 Fire 59 47
Incident volume in Carlton has remained stable over the past two years. This may change however as community growth occurs.
In the following paragraphs, ESCi provides further analysis of the agency’s workload. The agency will be evaluated by the ambulance division, and by the fire division. The workloads, type of work, and factors of influence that generate service demand is different for each division and require separate analyses.
33 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
A review of incidents by time of occurrence reveals when the greatest response demand is occurring. The following charts show how activity and demand changes for Carlton fire services based on time of day, day of week, and month of year.
Figure 18: Carlton Fire Workload by Time of Day
Carlton Fire: Workload by Hour of Day, 2004-2005
12.00%
10.00%
8.00%
6.00%
4.00%
2.00%
0.00% 0100 0200 0300 0400 0500 0600 0700 0800 0900 1000 1100 1300 1400 1500 1600 1700 1800 1900 2000 2100 2200 2300 Noon Midnite
34 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Requests for fire services are uneven throughout the day, but are generally higher in the afternoon and early evening hours. Comparatively, requests for ambulance service begin to rise at 7:00am, and begin to ease in the afternoon until 6:00pm in which it spikes again into the evening hours.
Figure 19: Carlton Ambulance Workload by Time of Day
Carlton Ambulance: Workload by Hour of Day, 2004-2005
8.00%
7.00%
6.00%
5.00%
4.00%
3.00%
2.00%
1.00%
0.00% 0100 0200 0300 0400 0500 0600 0700 0800 0900 1000 1100 1300 1400 1500 1600 1700 1800 1900 2000 2100 2200 2300 Noon Midnite
For the fire service, incident volumes are slightly uneven throughout the days of the week, with a general decrease toward week’s end. EMS calls exhibit a different pattern by decreasing into midweek and rising toward the weekend. The following figures illustrate these two unique patterns.
35 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Figure 20: Carlton Fire Workload by Day of Week
Carlton FD: Workload by Day of Week, 2004-2005
18.00%
16.00%
14.00%
12.00%
10.00%
8.00%
6.00%
4.00%
2.00%
0.00% SUN MON TUE WED THU FRI SAT
Figure 21: Carlton Ambulance Workload by Day of Week
Carlton Ambulance: Workload by Day of Week, 2004-2005
20.00%
18.00%
16.00%
14.00%
12.00%
10.00%
8.00%
6.00%
4.00%
2.00%
0.00% SUN MON TUE WED THU FRI SAT
36 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
When incident volumes are examined throughout the months of the year, as shown in the following figures, fire service requests have an uneven pattern once again. Increases in service demand occur in April, July, September, November, and December. Monthly EMS incident volumes follow a pattern in which activity rises from February through April, decreasing until August which rises through September. The year continues as call volumes fall in October to increase thereafter through January.
Figure 22: Carlton Fire Workload by Month of Year
Carlton FD: Workload by Month of Year, 2004-2005
16.00%
14.00%
12.00%
10.00%
8.00%
6.00%
4.00%
2.00%
0.00% JAN FEB MAR APR MAY JUN JUL AUG SEP OCT NOV DEC
37 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Figure 23: Carlton Ambulance Workload by Month of Year
Carlton Ambulance: Workload by Month of Year, 2004-2005
12.00%
10.00%
8.00%
6.00%
4.00%
2.00%
0.00% JAN FEB MAR APR MAY JUN JUL AUG SEP OCT NOV DEC
38 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
The following figure indicates the response time performance of the department by hour of day. In order to assemble a larger sampling of data, incidents from 2000 were utilized in the analysis.
Figure 24: Carlton Fire & Ambulance Response Time Performance
Carlton Fire District Response Time Performance by Hour of Day
Average 90th Percentile Trendline (90th)
0100 0200 0300 0400 0500 0600 0700 0800 0900 1000 1100 Noon 1300 1400 1500 1600 1700 1800 1900 2000 2100 2200 2300 Midnite
00:00 07:12 14:24 21:36
The data indicates that the department’s overall response time average was eight minutes and twenty-four seconds . Fractal analysis indicates a 90 th percentile response time performance of sixteen minutes.
Training and Competencies Recruit training is provided in basic safety, basic firefighting, S-130, S-190, and hazardous materials (hazmat) awareness. Volunteers are on probation for six months, and then are placed on reserve status until a permanent opening in the regular 25 person roster occurs. No minimal training levels have been established. Records are maintained on the department computer. Fire
39 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
officer training is not consistently offered. Training is offered every Tuesday, except the past Tuesday of the month, which is a business meeting. Each member receives an average of 90 hours of training per year. The department does not provide a physical ability test for existing volunteers; and minimal skill testing is not provided to any volunteer.
Current Risk Mitigation Currently, code enforcement is not preformed by the organization. The department is not involved in new construction. The fire department is not required to signoff before a certification of occupancy is issued. A key-box entry system is not in place. The organization does not perform any business inspections. The volunteers do minimal public education at the local schools. Fire origin and cause is conducted by the fire chief. All arson investigation is conducted by the State Fire Marshal’s Office.
40 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Cloquet Fire Department
General Description The settlements of Shaw town , Nelson town and Johnson town were platted in 1883. The following year, the three settlements were incorporated into the Village of Cloquet with a president/council form of government. Cloquet became a city in 1904, with a mayor/council form of government. The city council is elected from five geographical wards with one at-large member.
The Cloquet Fire Department (CFD) was established in 1888, using full-time firefighters around the clock. The municipal department evolved into a cross-trained fire and emergency medical service in 1945. Currently, the CFD is operationally staffed with a fire chief and 19 personnel on rotating shifts.
The department’s fire service area is comprised of 72 square miles and a population of approximately 12,514. The emergency medical service area is 261 square miles with a population of approximately 20,768. With the exception of the urban areas of the City of Cloquet, the service areas are primarily rural. Wet fire hydrants are installed in approximately 70 percent of the Cloquet fire service area.
CFD responds from a single station located at 508 Cloquet Avenue, Cloquet, MN 55720. The emergency fleet is comprised of three pumpers, one aerial truck, a brush fire truck, four ALS transport ambulances, and a command vehicle.
The Statutes of the State of Minnesota authorizes the fire chief to administer and enforce the Minnesota Uniform Fire Code (MUFC) including fire investigation.
Structure and Governance The Cloquet Fire Department’s authority to provide service is defined and codified by Cloquet City Code within the laws of the State of Minnesota. The duties and responsibilities of the fire department and the fire chief are clearly defined and documented. Policy-setting roles of the governing body and officers are appropriately established.
41 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Operationally, the CFD is comprised of the fire chief (a city department head), three captains, three fire equipment operators, and 13 firefighter/paramedics. The fire chief is appointed by the mayor and city council at the recommendation of the city administrator. Captains are appointed through competitive examination under the requirements of the Cloquet Civil Service Commission.
The following figure summarizes the department’s organizational structure:
Figure 25: Cloquet Organizational Structure
Fire Chief
Captain Captain Captain Medical A Shift B Shift C Shift Director
Fire Equipment Fire Equipment Fire Equipment Ambulance Operator Operator Operator Biller
(4) FF/PMs (4) FF/PMs (5) FF/PMs
Source: CFD Fire Chief
The unity of command and span of control for the organization is defined and appears appropriate. CFD uses a top-down hierarchy. While operating divisions are not identified, formal job descriptions are maintained. A statistical annual report is produced and incident data is forwarded to the State Fire Marshal.
A formal mission statement and vision statement have not been established for the department. Goals and objectives for CY2004, however, were established as follows: 1. Develop rules and regulations within the fire department that comply with city policies, state and federal regulations, and civil service rules and regulations. Completed.
42 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
2. Update standard operating procedures through an annual review of our standard operating procedures, revise where needed, and provide instruction to all staff on changes. Completed. 3. Incorporate software programs for record keeping for all fire and emergency medical services calls. Partially completed. 4. Meet with medical director to establish advanced training to our paramedics on pharmacology and rapid sequence intubation. Completed. 5. Establish a monthly training program for all personnel in the fire department. Not completed. 6. Complete preplans and courtesy inspections of assigned commercial, residential, and other occupancies. Not completed. 7. Update all mutual aid agreements and intercept agreements with all neighboring fire and ambulance services. Completed. 8. Update emergency medical services regulatory administrative manual and prepare all records for ambulance inspection. Completed. 9. Establish a system for maintenance and repair of all vehicles and equipment in our department. Completed. 10. Attempt to obtain grant money for equipment for fire and EMS use. Completed.
CFD sees its critical issues and future challenges as their current lack of staffing and current lack of funding.
Finance As determined by the League of Minnesota Cities, the city of Cloquet’s total market value is $537,562,869, with a total tax capacity of $6,667,927. The CFD annual budget is developed by the department and presented to the mayor and city council through the city administrator. Revenues are derived from the city’s general fund, grants, contracts, and donations. An external audit of the budget is conducted annually.
43 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
As authorized by mayor and city council, CFD may charge for services not covered by current contracts as follows:
Emergency Medical Services Applicable Medicare fees and charges Vehicle Fires Structural engine $300.00 Manpower charge $80.00 Firefighting foam $50.00 Petroleum absorbent $25.00 Vehicle Extrication Rescue vehicle charge $400.00 Personnel charge $40.00/hour/person Firefighting foam $50.00 Petroleum absorbent $25.00 Fire/Ambulance Report Fee $5.00
The annual revenues related to the fire department are summarized in the following figure:
Figure 26: Cloquet Revenues 2002 2003 2004 2005 County Ambulance Grant $8,220 $14,719 $16,267 $10,000 Special Services 4,567 10,056 11,138 3,650 Ambulance* 824,008 1,035,240 613,604 750,000 Donations 718 1,393 600 0 Total $837,513 $1,061,408 $641,009 $763,650 Source: City of Cloquet Finance Director *50% Collection Rate
The annual expenditures for the CFD are summarized in the following figure:
Figure 27: Cloquet Budget Summaries 2002 2003 2004 2005 Personal Services $1,288,175 $1,329,681 $1,407,411 $1,470,930 Supplies 36,447 40,357 41,427 34,050 Other Services 88,611 80,622 91,716 84,650 Capital Outlay 31,965 19,721 0 84,650 Total $1,497,065 $1,470,381 $1,630,936 $1,589,630 Source: City of Cloquet Finance Director
44 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
The Cloquet Firefighter’s Relief Association is authorized and operates under the mandates of Minnesota State Statutes. Currently, the Relief Association benefits cover two specific employees. All current personnel are covered under the Public Employee Retirement Association.
CFD shares their building with the Cloquet Police Department. The department is currently carrying debt service for their ladder truck. This debt service payment is approximately $80,000 annually and will be paid off in 2012. A citywide capital inventory is accomplished and tracked through the Finance Department using fixed asset software. There is no cash on CFD premises. British Petroleum credit cards are maintained for fleet refueling when City pumps are unavailable, and the department maintains charge accounts at Wal-Mart, L&M Hardware, and Ace Hardware. City purchasing rules and procedures are in place.
Capital Assets and Resources As stated earlier, the Cloquet Fire Department operates one fire station. This station is fairly modern and equipped for suitable operations. Cloquet Fire Department has the ability to conduct many different types of training exercises for firefighters. The administrative offices are well designed, but additional offices would suit the company officer. Higher ranking officers should have privacy for sensitive issues, and there seems to be shortage of separate offices.
The following evaluation and general condition assessment was conducted on the station.
45 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Cloquet Fire Station 508 Cloquet Ave.
Built in 1967, this relatively modern, 12,200 square foot facility consists of seven apparatus bays. The station blends nicely with the surrounding community and serves as both the fire and police department for the city. Any specific problems with this facility can be classified into the following seven categories. This fire station was re-designed from a police department into today's fire department. There is • Design: limited room for the staff and equipment. The day room is small and crowded. Otherwise, the facility is adequately designed for its functions. Block construction. Flat roof over apparatus area • Construction: has caused water leaks and maintenance problems. Building is 50% sprinklered. No automatic monitored fire alarms - local smoke alarms only. Flammable and combustible liquids are stored in approved cabinets. Overhead doors have an air • Safety: impact reversible system. There are adequate fire extinguishers located through out the building. The building has a back up natural gas generator to supply power to 50% of the building. All pressure cylinders are properly stored. No exhaust removal system. The Cloquet Fire • Department has received a grant in 2006 to correct Environment: this problem. The facility has no underground storage tanks. • Facility has not been fully upgraded for ADA Code Compliance: compliance. Adequate private dorms for staff with restrooms attached. Firefighters enjoy a fairly well equipped • work out room with a sauna. The training room is Staff Facilities: located away from the high traffic area and is large enough for 22-24 persons in the classroom. Plenty of room to maneuver around vehicles. • Relatively efficient building. Good space utilization. Efficiency: Could use more office space for officers.
46 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
The department operates numerous pieces of firefighting apparatus. The following evaluation and general condition assessment was conducted on the primary response apparatus 5. .
Pump Tank Meets Unit Cloquet Fire Year Condition Seats Remarks GPM Size NFPA
T-108 2001 Excellent 2000 300 6 Yes No problems noted.
E-101 1994 Very Good 1,250 1,000 5 Yes Well equipped, no problems noted
E-102 2000 Excellent 1,750 1,000 5 Yes Well equipped, no problems noted
Equipment not mounted in compartments. E-103 1984 Fair 1,250 1,000 5 No SCBAs not secured. Does not carry full inventory of ISO required equipment.
No problems noted. M-9 2005 Good N/A N/A 2 Yes Equipment is neat and mounted securely.
No problems noted. M-10 1994 Excellent N/A N/A 2 Yes Equipment is neat and mounted securely.
No problems noted. M-11 1999 Excellent N/A N/A 2 Yes Equipment is neat and mounted securely.
5 The Apparatus Rating Chart is located in the Appendix.
47 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Pump Tank Meets Unit Cloquet Fire Year Condition Seats Remarks GPM Size NFPA
No problems noted. M-12 2003 Excellent N/A N/A 2 Yes Equipment is neat and mounted securely.
Staffing The City of Cloquet Fire Department is comprised of the fire chief, three captains, three fire equipment operators, and twelve firefighter/paramedics, and one firefighter/Emergency Medical Technician (EMT). The department’s medical director is provided a modest stipend, and a half-time individual accomplishes the billing for ambulance fees and charges.
The personnel staff or support an emergency fleet comprised of three pumpers, one aerial truck, a brush fire truck, four ALS transport ambulances, and a command vehicle.
Employees of the rank of captain and below are represented by the International Association of Fire Fighters (IAFF) Local #880. Where the labor contract is silent, Civil Service regulations or the personnel policies of the City of Cloquet prevail.
Administrative and Support Staffing The fire chief and a half-time individual responsible for ambulance fees’ billing comprise the administrative and support staff of the department. All other major administrative/support functions are provided by other city entities.
Operational Staffing Currently CFD has 19 full-time operational employees. The fire chief, however, may provide operational support when other operational personnel are not available, or act as the incident commander.
Operational employees work a modified Santa Monica rotating shift, averaging 53 hours per week. This shift is comprised of three platoons each working 24-hour shifts; Tuesday, Friday, Sunday, Thursday, Saturday, Monday, Wednesday. Every three weeks, one of the shifts gets five days off.
48 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Due to vacations, scheduled time off to comply with FLSA (Fair Labor Standards Act), military leave, holiday time in lieu of overtime for working holidays, and sick leave, the majority of shifts are covered by four personnel.
Additionally, when the chief is not working, personnel scheduled to work the next shift are called back on overtime to maintain four personnel in the station during active incidents. These call-backs occur frequently on a daily basis. An individual may be called back multiple times in a twenty-four hour period.
These call-backs result in hundreds of hours of overtime per employee per year. Based on interviews while on-site for this study; employees and departmental programs have begun to feel the fatigue, stress, and result of excessive call-backs and under-staffing, coupled with increasing workload.
The following figure summarizes the department’s annual overtime expenditures for recent years: Figure 28: Cloquet Annual Overtime Expenditures 2002 2003 2004 2005 Vacation/Holiday $3,335 $3,774 $9,889 $9,860 Call-Back Emergency 132,267 127,624 155,807 159,901 Call-Back Scheduled 10,153 15,311 20,365 8,250 Overtime Total 145,755 149,219 186,061 178,011 Average $7,671 $7,854 $9,793 $9.369 Per Employee Source: City of Cloquet Finance Director
Rotating shifts are staffed as outlined in the following figure:
Figure 29: Cloquet Rotating Shift Staffing A Shift B Shift C Shift Captain 1 1 1 Fire Equipment Operator 1 1 1 Firefighter/Paramedic 4 4 5 Total 6 6 7 Minimum Shift Staffing 4 4 4
49 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Minimum apparatus staffing for the department is established as follows:
Figure 30: Cloquet Minimum Apparatus Staffing Vehicle Minimum Staffing Engines 2 Aerial Truck 1 Brush Truck 1 Medic Unit 2 Command Vehicle 1
. Service Delivery CFD provides fire, rescue, and advanced life support emergency medical transport services to its service area as dispatched by the Carlton County Sheriff’s Office.
CFD’s fire service area includes the City of Cloquet and supplemental response on structure fires 6 to Perch Lake Township. Perch Lake contracts for fire services from Cloquet. The department’s emergency medical services service area includes the City of Cloquet, and the townships of Perch Lake, Thomson/Esko, Brevator-Arrowhead, Stoney Brook, Culver, and Industrial. The communities of Carlton, Cromwell, Floodwood, McGregor, and Meadowlands are provided advanced life support services when requested.
An incident command system and accountability system have been established, but are inconsistently implemented. A formal, regional mutual aid system is in place through the Minnesota Fire and Rescue Mutual Aid Program (FIREMAP) and the Minnesota Incident Management Team referred to as MNICS. A hazardous materials team is available from the City of Duluth.
Pre-fire planning is recorded on manual forms and drawings and stored in the station office. Copies of the pre-plans kept on the responding apparatus are not up-to-date.
6 Cloquet has a contract to provide one engine on response with Perch Lake VFD to Perch Lake Township.
50 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
The CFD response workload is summarized in the following figures:
Figure 31: Cloquet Fire Response Summary Type of Incident 2000 2001 2002 2003 2004 Fire/explosion 67 52 42 50 55 Overpressure 3 4 1 7 1 Rescue 519 526 546 499 610 Hazardous condition 30 49 30 19 15 Service calls 56 13 15 32 40 Good intent 42 21 16 36 45 False 68 61 74 79 113 Other situation 3 2 4 2 4 TOTAL 788 728 728 724 883 Source: CFD Fire Chief
Figure 32: Cloquet Ambulance Response Summary Ambulance Responses By Jurisdiction 11/01/03 Through 11/01/05 Jurisdiction Number of Responses Brookston 33 Carlton 9 Cloquet 2,539* Cromwell 1 Culver 9 Duluth 4 Esko 90 Floodwood 13 Grande Lake 4 Holyoke 1 Industrial 3 Meadowlands 1 Merrifield 1 Moose Lake 10 Saginaw 14 Saginaw Station 14 Sawyer 27 Wrenshall 1 Unknown 23 TOTAL 2,784 Source: CFD *Includes 200+ interagency/non-emergency transports
51 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Standards of Coverage The Cloquet Fire Department has established a Standard of Coverage as outlined in the following figure:
Figure 33: Cloquet Standard of Coverage Incident Type Apparatus Typical Staffing 1. Automatic Fire Alarm Commercial Truck,1 Engine, 1 Ambulance 4 Industrial Truck, 1 Engine, 1 Ambulance 4 Educational Truck,1 Engine, 1 Ambulance 4 Residential 1 Engine, 1 Ambulance 4 2. General Fire Alarm 1 Engine 4 Areas Without Hydrants 2 Engines 4 3. Miscellaneous Fire Alarms Mutual Aid 1 Engine 4 Perch Lake Contract 1 Engine 4 Vehicle, Dumpster, Refuse 1 Engine, 1 Ambulance 4 Wildland 1 Engine, 1 Brush Truck 4 4. Emergency Medical/Rescue Medical Emergencies 1 Ambulance, 1 Utility Vehicle 3 Interfacility Transfers 1 Ambulance 2 Vehicle, Industrial Accident 1 Rescue Engine, 1 Ambulance 4 Helicopter Landing Zone 1 Rescue Engine, 1 Ambulance 4 Source: CFD Emergency Operations SOP
The CFD turnout time standard (leaving the station) is one minute for daytime hours and two minutes for night-time hours. The response time (arrival time from notification) performance goal within the City of Cloquet is four minutes.
Emergency Medical Services CFD provides advanced life support transport service with three captain/paramedics, three emergency vehicle operator/paramedics, 12 firefighter/paramedics, one firefighter/EMT, and four ALS ambulances. Dr. Kenneth Ripp is retained as the department’s medical director. Dr. Ripp oversees medical protocols and the medical quality assurance program for the CFD.
Deployment Strategy / Response Time Capabilities Cloquet Fire Department maintains one fire station within its response area. The following map displays the total primary response area of the agency as well as the station location. In addition,
52 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
shaded polygons demonstrate those areas within a four-, six-, and eight-minute travel time of the station (does not include turnout time). Non-shaded areas are beyond an eight-minute travel time.
Figure 34: Cloquet Current Station Deployment
53 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Response Time Performance Cloquet Fire Department utilizes records management software that is compliant with the National Fire Incident Reporting System (NFIRS), from which analysis is possible.
Figure 35: Cloquet Workload History 2004 - 2005
Two-Year Workload History
1000 800 EMS 600 Fire 400 200 0 2004 2005 EMS 692 810 Fire 253 231
Although actual fire incidents and other type responses have remained relatively stable over the past two years, EMS calls have increased over 17 percent. As the County’s most densely populated community, Cloquet can expect these increases in EMS calls to continue.
In the following paragraphs, ESCi provides further analysis of the agency’s workload. As was performed with Carlton Fire & Ambulance Department, the Cloquet Fire Department ambulance and fire divisions will be evaluated separately.
54 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
A review of incidents by time of occurrence reveals when the greatest response demand is occurring. The following charts show how activity and demand changes for Cloquet Fire services based on time of day, day of week, and month of year.
Figure 36: Cloquet Fire Workload by Time of Day
Cloquet Fire: Workload by Hour of Day, 2004-2005
9.00%
8.00%
7.00%
6.00%
5.00%
4.00%
3.00%
2.00%
1.00%
0.00% 0100 0200 0300 0400 0500 0600 0700 0800 0900 1000 1100 1300 1400 1500 1600 1700 1800 1900 2000 2100 2200 2300 Noon Midnite
Requests for fire services begin to come in with increasing frequency at about 6:00am. The activity continues to rise until peaking at 1:00pm. The gradual decline until midnight is evident in the preceding figure.
55 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
The requests for ambulance service begin earlier at 4:00am, peaking rather early in the morning, and declining throughout the remainder of the hours. This can be seen in detail in the following figure.
Figure 37: Cloquet Ambulance Workload by Time of Day
Cloquet Ambulance: Workload by Hour of Day, 2004-2005
8.00%
7.00%
6.00%
5.00%
4.00%
3.00%
2.00%
1.00%
0.00% 0100 0200 0300 0400 0500 0600 0700 0800 0900 1000 1100 1300 1400 1500 1600 1700 1800 1900 2000 2100 2200 2300 Noon Midnite
For the fire service, incident volumes rise into the middle of the week, with a general decrease toward week’s end. EMS calls follow a pattern of general increase in activity during the weekdays and decline on the weekends, except for the slight reprise in activity mid week. The following figures illustrate these patterns.
56 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Figure 38: Cloquet Fire Workload by Day of Week
Cloquet FD: Workload by Day of Week, 2004-2005
18.00%
16.00%
14.00%
12.00%
10.00%
8.00%
6.00%
4.00%
2.00%
0.00% SUN MON TUE WED THU FRI SAT
Figure 39: Cloquet Ambulance Workload by Day of Week
Cloquet Ambulance: Workload by Day of Week, 2004-2005
18.00%
16.00%
14.00%
12.00%
10.00%
8.00%
6.00%
4.00%
2.00%
0.00% SUN MON TUE WED THU FRI SAT
When incident volumes are examined throughout the months of the year, as shown in the following figure, fire service requests peak in April, and remains uneven throughout the remainder of the
57 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
year. Monthly EMS incident volumes follow a stable pattern in which activity is slightly higher in the latter half of the year.
Figure 40: Cloquet Fire Workload by Month of Year
Cloquet FD: Workload by Month of Year, 2004-2005
18.00%
16.00%
14.00%
12.00%
10.00%
8.00%
6.00%
4.00%
2.00%
0.00% JAN FEB MAR APR MAY JUN JUL AUG SEP OCT NOV DEC
Figure 41: Cloquet Ambulance Workload by Month of Year
Cloquet Ambulance: Workload by Month of Year, 2004-2005
12.00%
10.00%
8.00%
6.00%
4.00%
2.00%
0.00% JAN FEB MAR APR MAY JUN JUL AUG SEP OCT NOV DEC
58 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
The following figure indicates the department’s response time performance by hour of day for calendar year 2005.
Figure 42: Cloquet Response Time Performance
Cloquet FD: Response Time Performance by Hour of Day, 2005 90th Percentile Average Trendline
0100 0200 0300 0400 0500 0600 0700 0800 0900 1000 1100 Noon 1300 1400 1500 1600 1700 1800 1900 2000 2100 2200 2300 Midnite
00:00 01:26 02:53 04:19 05:46 07:12
The data indicates that the department’s overall response time was an average of three minutes and fifteen seconds. Fractal analysis indicated a 90 th percentile performance of just five minutes.
59 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Training Competencies Cloquet Fire Department does not have a dedicated training officer or training coordinator. Staffing levels and workload have reduced the department’s training program to an attempt to complete annual re-certifications and continuing education annually.
New employees, selected through a civil service process, must successfully complete NFPA Firefighter l certification and serve six months probation. They are assigned to a field training officer (FTO) although the FTOs receive no guidance or training, and the oversight of new employees is inconsistent. Entrance and annual medical screening is required, but does not meet NFPA standards.
Members must have a mandatory basic safety orientation before being approved for emergency response. There are no minimum state certifications for fire response. In-house training is provided by operational officers and senior firefighter/paramedics, although CFD does not currently have certified instructors. Consistent officer training is not provided, and lesson plans are not utilized. Minimum physical ability testing is not conducted, and minimum skills’ competencies are informally monitored through observation. All employees are trained to the hazardous materials technician level.
60 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Fire training was conducted on the following topics during 2004:
Figure 43: Cloquet Fire Training Topics/Hours 2004 Topic Hours Communications 7.0 Labor/Management 4.0 Employee Evaluations 4.0 RIT Pack and Operations 1.0 Training Goals and Objectives 2.0 SCBA 18.5 Building Construction 3.0 Fire Department Administration 32.0 Wildland Firefighting 21.0 Firefighting Foam 4.5 Emergency Management 20.0 FoamPro Systems 1.0 Emergency Planning 10.0 FEMA Grant Preparedness 4.0 Fire Department Small Engines 6.0 CERT 15.0 IFSTA Fire Behavior 3.0 Physical Training 0.5 Rescue Operational Planning 0.5 Extrication 12.5 Vehicle Fires 2.5 Strategic Planning 8.5 High Level Rescue 2.5 Natural Gas Safety 1.0 Fire Department Pumps and Aerials 3.0 Fire Prevention and Education 3.0 Event Planning 3.0 Public Relations and Education 5.0 Decision Making and Problem Solving 8.0 Trench Rescue 1.0 Leadership and Influence 9.0 Master Planning 2.0 Fire Extinguishers 1.0 NIMS 13.0 Developing and Managing Volunteers 8.0 Firefighter Safety 2.5 Exercise Design 10.0 Dive Rescue 7.0 Fire ground Orientation 1.5 EOC Management and Operation 10.0 Airbag Safety 1.5 Biosystem Gas Detection 1.0 TOTAL 270.5
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Source: CFD Fire Chief Emergency medical training was conducted on the following topics in 2004:
Figure 44: Cloquet EMS Training Topics/Hours 2004 Topic Hours P.A.L.S. Refresher 8.0 Peds, Geriatrics, Toxicology Refresher 4.0 Pediatric Pulmonary Emergencies 1.0 Infant and Child CPR/FBAO 4.0 Auto Syringe Pumps 2.0 Pharmacology 13.5 BLS Healthcare Refresher 2.5 QA/QI 3.0 Rapid Sequence Intubation 9.0 Airways and Oxygen 3.0 Physio-Control 2.5 12 Lead Defibrillators 5.0 Sappi Site Orientation 1.0 Dignitary EMS Protection 9.5 Ambulance Decontamination 3.5 Cardiac –Long QT Syndrome 1.0 Medical Documentation 2.0 ACLS Pharmacology 2.0 CHF 2.0 EMS Roles and Action Plans 8.0 EMS Operations at MCIs 4.0 TOTAL 90.5
During CY2004, nineteen employees participated in 91 fire training sessions, comprising 270.5 hours of training. This is an average of approximately 14.24 hours of fire training per employee for the year. The Insurance Services Office, for example and comparison, promotes 240 hours of fire training per year in addition to officer training.
Eighteen employees participated in 37 EMS training sessions, comprising 90.5 hours or an average of 5.03 hours of training per employee for the year.
Trainings statistics were only provided for CY2004.
62 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Current Risk Mitigation State of Minnesota Statute Number 299F.04 states “The fire chief shall cause to be investigated, the cause, origin, and circumstances of each fire occurring within the cities/towns jurisdiction when damage exceeds $100, or fire is of unknown origin, and shall especially make investigation as to whether the fire was the result of carelessness, accident, or design. Investigation shall be begun within two days of the occurrence of the fire.”
CFD conducts fire cause and origin determinations with a team of four employees certified at the B criminal apprehension level, and are canine certified. Their dog, Nick, is an active member of the cause and origin team. No statistics were provided for the team’s activity or accomplishments.
The Minnesota Uniform Code Section Number 103.2.1.1 states “Chief is authorized to administer and enforce the Minnesota Uniform Fire Code and ordinances within the jurisdiction pertaining to: prevention of fire, suppression or extinguishment of dangerous or hazardous fires, storage, use, and handling of hazardous materials…” The CFD defers code enforcement activities to the City of Cloquet or the State Fire Marshal.
The City of Cloquet has discontinued life and fire safety education efforts due to their staffing levels and workload.
63 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Cromwell Fire and Ambulance Service
General Description The Cromwell Fire and Ambulance Service (CFAS) is duly organized as an entity of the City of Cromwell, Minnesota. The Cromwell City Council serves as the governing body of the CFAS. The department was formed under the laws of the State of Minnesota, Statute 412.221, sub.17, and is granted authority to provide fire, rescue, and basic life support emergency medical services as part of their mission.
The department’s response district is defined by the city-line of Cromwell and those areas determined by contract with neighboring jurisdictions. The response area is primarily rural in nature.
CFAS provides services from one station to a population of approximately 1,880 in an area of approximately 261 square miles, depending upon whether fire services or basic life support emergency medical services are needed. While Cromwell has four dry hydrants in the city and a number of accessible water sources across the response area, approximately only five percent of the response area is served by wet hydrants. The Insurance Services Office has determined a rating of 7/9 to the city. The rating of seven is determined for those areas having fire hydrants.
The CFAS has 33 volunteer members. Twenty-two of the members staff two pumpers, a water tender, a brush unit, two ambulances, and 6X6 all terrain vehicle. With this resource, CFAS provides fire suppression, basic life support EMS, extrication/rescue, and limited public education. The Statutes of the State of Minnesota authorize the fire chief to administer and enforce the Minnesota Uniform Fire code (MUFC) including fire investigation.
Structure and Governance The City of Cromwell’s authority to provide service is clearly defined in municipal charter and Minnesota state law under a mayor and city council form of government. The fire department and the fire chief’s duties and responsibilities are defined by a formal constitution and by-laws. Policy- setting roles of the governing body and officers are appropriately documented. The CFAS is both a city-entity and chartered as a corporation under Statute 317 of the State of Minnesota as the
64 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Cromwell Volunteer Fire Department on June 24, 1954. The CFAS has regular meetings on the third Monday of each month.
Operationally, the CFAS is comprised of the fire chief, an assistant chief, two captains, two lieutenants, and 16 EMT/firefighters. The fire chief, treasurer, and secretary are elected by the membership annually subject to approval of the city council. The assistant chief, captains, and lieutenants are appointed by the fire chief.
The following figure summarizes the CFAS organizational structure:
Figure 45: Cromwell Operations Organizational Structure
Fire Chief
Medical Director Treasurer
Ambulance Billing Secretary Director Assistant Chief Training/Amb Ops. Mgr.
Captain Captain
Lieutenant Lieutenant
Sr. Firefighters/Firefighters/Trainees
Members of the CFAS are reimbursed for their response expenses. Members responding to the scene of the incident or to the fire hall each receive $5.00 per incident. Members staffing the ambulance on EMS responses receive an additional $15.00 per incident.
The unity of command and span of control for the organization is defined and is in order. CFAS uses a top-down hierarchy, and clear operating divisions exist. Formal job descriptions are not maintained, but are currently in progress. The chief has full authority over appointments and may
65 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
recommend terminations to the city council. An annual report is not produced, although membership data is produced each year. Operational responses are documented and transmitted to the State Fire Marshal. Programs, goals, and objectives are discussed annually at membership meetings.
CFAS has adopted the following motto, vision, value, and mission statement:
Motto Courage, Honor, Duty
Vision “To be the best of the best in providing emergency services while earning the trust of all”
Mission “To serve others in the spirit of teamwork, and the duty to save and protect lives, property, and the environment through performance basic training, to develop and command the highest disciplines in medical care, fire suppression, rescue, haz-mat emergencies, and to educate the public in prevention. To have excellence in the knowledge of the service area, the skill in using all equipment to manage all resources, and to be prepared.”
CFAS identifies its critical issues and future challenges as their day-time staffing response situation, the formulation of consistent, legal contractual arrangements with entities they are protecting, their recruitment challenges, and volunteer management requirements.
Finance An annual budget is developed for funds received from the city and presented to the city council. Revenues are derived from the Northwest Carlton County Ambulance District, the city of Cromwell, Department of Natural Resources, the Carlton County EMS Subsidy, written agreements/contracts with Eagle Township, the vicinities of Crona, Progress, and Red Clover, grants, and donations. In addition to the city financial process, CFAS maintains a checking account for fire funds, and a checking and savings account for EMS funds. An external audit of the city account is conducted annually. It is unclear whether the CFAS private accounts have an external audit.
66 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
The annual income and expenditures for CFAS are summarized in the following chart:
Figure 46: Cromwell Annual Income & Expenditures CATEGORY CY2005 CY2004 CY2003 INCOME Fire City/Eagle/Twps $31,932.78 $21,128.20 Donations 5,796.70 3,090.00 Reimbursements 393.00 1,183.62 Jacket Sales 90.00 0.00 Grants 0.00 2,725 Sub-Total 38,212.48 28,126.83 Ambulance Ambulance Billing 75,588.44 41,616.94 EMS Savings Transfer 2,000 0.00 Sub-Total 77,588.44 41,616.94 Non-Income Sub-Total 0.00 14,744.00 Total Income 115,800.92 84,487.77 EXPENSES Fire 13,398.96 19,883.54 Ambulance 42,919.66 28,834.71 Shared 48,174.50 35,685.96 Total Expenses 104,493.12 84,404.24 BALANCE Net Balance $11,307.80 $83.53 Source: CFAS
At this writing, the CFAS maintains an EMS savings account balance of $6,499.19 and an ambulance purchase bank loan of $77,544.85.
The Cromwell Firefighter’s Relief Association is authorized and operates under the mandates of Chapter 69 of the Minnesota Statutes for the benefit of CFAS members.
CFAS does not maintain a formal capital inventory. The chief and the treasurer have a VISA/debit card, and there is no cash on CFAS premises. Municipal purchasing rules are in place for City funds.
67 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Capital Assets and Resources As stated earlier, the Cromwell Fire Department operates one fire station. This station is fairly adequate and equipped for suitable volunteer fire fighting operations. Cromwell Fire Department has the ability to conduct many different types of training exercises for firefighters. There are no administrative offices, and additional offices for the officers should be considered. Higher ranking officers should have privacy for sensitive issues, and there seems to be shortage of separate offices.
The following evaluation and general condition assessment was conducted on the station.
Cromwell 5592 Highway 10 Built in 1985, this one-story pole building, 4,080 square foot facility consists of three apparatus bays. The station presents few concerns related to maintenance, public access, staff facility, safety, and efficiency for a volunteer organization.
Any specific problems with this facility can be classified into the following seven categories.
• This station designed was intended only to serve Design: volunteer firefighters. • Construction: Metal pole building design. Building is not sprinklered. Flammable and combustible liquids are not stored in open storage • Safety: shelving. Portable extinguishers are located through out the fire station. Overhead doors have an air impacted reversible system. • Environment: No exhaust removal system. • Code Compliance: Facility is ADA compliant. Limited storage spaces. Kitchen and meeting room • is efficient for training and fire department Staff Facilities: meetings. Plenty of room to maneuver around vehicles. • Relatively efficient building. Could use more office Efficiency: space for other officers. Good space utilization.
68 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
The department operates numerous pieces of firefighting apparatus. The following evaluation and general condition assessment was conducted on the primary response apparatus. Definitions of the condition assessment ratings can be found in the Appendix.
Pump Tank Meets Unit Cromwell Fire Year Condition Seats Remarks GPM Size NFPA SCBAs not secured in bracket. Well equipped, E-461 1976 Excellent 750 750 2 Yes neatly stored, but not all equipment mounted, no problems noted. SCBAs not secured in bracket. Well equipped, E-462 1988 Very Good 1000 1000 2 Yes neatly stored, but not all equipment mounted, no problems noted.
T-463 1994 Very Good 240 2000 2 Yes Well equipped, no problems noted
BLS. No problems A-460 2005 Excellent N/A N/A 2 Yes noted. Equipment is neat and mounted securely.
BLS Unit. No problems noted. A-466 1996 Very Good N/A N/A 2 Yes Equipment is neat and mounted securely.
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Staffing Operationally, CFAS is comprised of the fire chief, an assistant chief, two captains, two lieutenants, and 16 EMT/firefighters. The fire chief serves as a department head for the city.
Administrative and Support Staffing The fire chief, secretary, and treasurer are elected annually and comprise the department’s administrative and support staffing. CFAS does not have clerical support other than through the relationship with the city of Cromwell.
Operational Staffing CFAS is a volunteer response organization with its operational staffing capped at 35 members. Currently, the department has 33 members, with 22 members operationally active. Members are reimbursed for their expenses during incidents as outlined above, and are eligible for the benefits provided through the Cromwell Firefighter’s Relief Association.
Service Delivery CFAS provides fire, rescue, and basic life support medical services to its service area as dispatched by the Carlton County Sheriff’s Office, although the closest emergency response resource is not necessarily dispatched to incidents, as there is no automatic dispatch protocol for EMS incidents. The Eagle Township and the Crona, Progress, and Red Clover vicinities contract with CFAS to provide their fire/EMS protection. CFAS has contract with Cloquet Fire Department for advanced life support intercept services.
An incident command system and accountability system have been established, but are inconsistently implemented. A formal, regional mutual aid system is in place through the Minnesota Fire and Rescue Mutual Aid Program (FIREMAP) and the Minnesota Incident Management Team (MNICS). A hazardous materials team is available from the City of Duluth.
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The CFAS response workload is summarized in the following figure:
Figure 47: CFAS Response Workload Type of Incident CY2004 Fire/Rescue 32 Ambulance 170 Total 202 Source: CFAS
Standards of Coverage Currently, the Cromwell Fire and Ambulance Service has not established standards of coverage.
Emergency Medical Services CFAS provides a basic life support medical service with 22 certified EMTs and two transport ambulances. Cromwell uses the protocols, medical quality assurance program, and services of Medical Director Sue Benzie, MD.
Deployment Strategy / Response Time Capabilities Cromwell Fire & Ambulance maintains one fire station within its response area. The following map displays the total primary response area of the agency, as well as the station location. In addition, shaded polygons demonstrate those areas within a four-, six-, and eight-minute travel time of the station (does not include turnout time). Non-shaded areas are beyond an eight-minute travel time.
71 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Figure 48: CFAS Current Station Deployment
Response Time Performance Cromwell Fire and Ambulance Service does not utilize records management software that is compliant with the National Fire Incident Reporting System (NFIRS). No individual incident data was submitted from which response time performance analysis could be conducted. However, dispatch data from the Sheriff’s Department was made available and utilized for workload analysis.
72 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Figure 49: Cromwell Workload History, 2004 - 2005
Two-Year Workload History
150 EMS 100 Fire
50
0 2004 2005 EMS 134 124 Fire 16 13
Incident volumes decreased in Cromwell over the past two year’s. Any plans for growth in this area, if fulfilled, will reverse this trend.
The Cromwell Fire Department has an ambulance service, in addition to its fire protection operations similar to Carlton and Cloquet fire departments. As such, Cromwell will be evaluated in the same manner, by dividing the ambulance division and the fire division.
The following charts show how activity and demand changes for Cromwell Fire Department based on time of day, day of week, and month of year.
73 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Figure 50: Cromwell Fire Workload by Time of Day
Cromwell Fire: Workload by Hour of Day, 2004-2005
25.00%
20.00%
15.00%
10.00%
5.00%
0.00% 0100 0200 0300 0400 0500 0600 0700 0800 0900 1000 1100 1300 1400 1500 1600 1700 1800 1900 2000 2100 2200 2300 Noon Midnite
Requests for fire services are infrequent in the overnight hours, while the peak activity occurs at about 10:00am. Moderate call volume continues in the afternoon. The requests for ambulance service begin to rise at 4:00am, peaking in the early afternoon with an uneven pattern in activity.
74 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Figure 51: Cromwell Ambulance Workload by Time of Day
Cromwell Ambulance: Workload by Hour of Day, 2004-2005
9.00%
8.00%
7.00%
6.00%
5.00%
4.00%
3.00%
2.00%
1.00%
0.00% 0100 0200 0300 0400 0500 0600 0700 0800 0900 1000 1100 1300 1400 1500 1600 1700 1800 1900 2000 2100 2200 2300 Noon Midnite For the fire service, incident volumes follow an uneven pattern to a peak into the middle of the week, with a general decrease toward week’s end, and into Monday. EMS calls follow a pattern of general stability during the weekdays, and an increase on Saturdays. Refer to the following figures for a detailed presentation.
75 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Figure 52: Cromwell Fire Workload by Day of Week
Cromwell FD: Workload by Day of Week, 2004-2005
30.00%
25.00%
20.00%
15.00%
10.00%
5.00%
0.00% SUN MON TUE WED THU FRI SAT
Figure 53: Cromwell Ambulance Workload by Day of Week
Cromwell Ambulance: Workload by Day of Week, 2004-2005
25.00%
20.00%
15.00%
10.00%
5.00%
0.00% SUN MON TUE WED THU FRI SAT
76 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
When incident volumes are examined throughout the months of the year, as shown in the following figure, fire service requests peak in April, and remains uneven throughout the remainder of the year. Monthly EMS incident volumes follow a similar pattern in which activity is peaks earlier in March, declines into May, only to peak again August, although with less frequency in requests.
Figure 54: Cromwell Fire Workload by Month of Year
Cromwell FD: Workload by Month of Year, 2004-2005
25.00%
20.00%
15.00%
10.00%
5.00%
0.00% JAN FEB MAR APR MAY JUN JUL AUG SEP OCT NOV DEC
Figure 55: Cromwell Ambulance Workload by Month of Year
Cromwell Ambulance: Workload by Month of Year, 2004-2005
12.00%
10.00%
8.00%
6.00%
4.00%
2.00%
0.00% JAN FEB MAR APR MAY JUN JUL AUG SEP OCT NOV DEC
77 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Training Competencies The assistant chief administers the CFAS training program. He is assisted in in-service training by other operational officers.
Members must have a mandatory basic safety orientation before being approved for emergency fire response. There are no minimum state certifications for fire response. First responders and emergency medical technicians must have successfully completed the appropriate State of Minnesota certification prior to medical response.
In-service training is coordinated by the assistant chief, and typically provided by the operational officers, although CFAS does not currently have certified fire instructors. Consistent officer training is not provided, and lesson plans are not utilized. Minimum physical ability testing is not conducted, and minimum skills competencies are informally observed during in-service training.
CFAS officers must meet the following minimum training requirements: • CFAS minimum training • Minnesota Incident Command • National Incident Command System • Leadership l, ll, or lll • Building Construction/Collapse l • Incident Safety Officer
Training was conducted on the following topics during CY2005/2006:
Figure 56: CFAS Training Topics for 2005 - 2006 Topic Dwelling Fires Incident Command Infection Control EMT Refresher Medication Skills 1st Responder Refresher Engine Co. Training Pump Operations Auto Fire Burn Source: CFAS
78 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
An applicant must be 16 years of age to join the internship program. Probationary members must complete a minimum training requirement before responding as a ride along or operating on the scene of an emergency. The training officers must validate training certifications before the member is permitted to respond to incidents. Operational officers must recommend the probationary member to rookie status, when the member may join the Relief Association.
Figure 57: CFAS Membership Training Statistics CY1999, 2003, & 2004 2004 2003 1999 Training Hours 2,502 2,665 1,600 Members Trained 21 20 21 Average/Member 114 133 70 Source: CFAS
Current Risk Mitigation Cromwell Fire and Ambulance Service does not participate in code administration or enforcement. Typically, the State Fire Marshal’s Office is notified of suspicious fire incidents.
CFAS presents a fire safety program annually during Fire Prevention Week. Pre-school children receive life and fire safety education at the CFAS station. Fire Wise education is provided to senior citizens.
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Esko Fire Department
General Description The Esko Fire Department (EFD) protects the town of Thomson, MN. The township is a rural community located twelve miles west of Duluth, and five miles east of Cloquet. The Jay Cooke State Park forms the town’s southern border. It covers 43 square miles with a population of approximately 4,727 residents.
Five elected Board of Supervisors and an appointed clerk/treasurer serve the town. There are four people employed full-time in the town road and bridge department, a full-time police officer, and a volunteer fire department.
The EFD is volunteer fire department currently comprised of 27 active members. There is a membership cap of 35. The department, founded in 1949, is established as an entity of the Thomson Township which serves as it governing body. EFD responds to fire, rescue, and first responder medical incidents in its response district.
EFD enjoys an Insurance Service Office protection Class 5 for those properties in its responsible area requiring a fire flow of 3,500 gpm, or less within five miles of the fire station. All other areas are assigned a protection Class 9.
Structure and Governance The Esko Fire Department’s authority to provide service is defined by an Ordinance of the Thomson Township. The fire department, the fire chief, and other officer’s duties and responsibilities are clearly defined by ordinance, by-law, and/or standard operating guideline, as well. Policy-setting roles of the governing body and officers are appropriately documented as required by the laws of the State of Minnesota. EFD is currently in the process of combining their by-laws and standard operating guidelines.
The department has regular monthly meetings to conduct operational fire department business. The fire chief presides over the meetings.
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The following figure summarizes the department’s organizational structure:
Figure 58: Esko Organizational Chart
Captain
Captain
1st Assistant Chief
Captain
Firefighters Safety Chief First Responders Officer EMTs
Medical Officer 2nd Assistant Chief Training Officer
Public Education Officer
The unity of command and span of control for the organization is defined and appears appropriate. EFD uses a top-down hierarchy. Formal job descriptions are currently in the works . The chief recommends appointments and terminations to the Town Board of Supervisors (Board). A formal annual report is produced annually as required by the department’s by-laws. Operational responses and activity are documented and transmitted monthly to the Board and the State Fire Marshal.
Programs, goals, and objectives are usually discussed annually during the budget preparation process. EFD has adopted the following mission statement:
“The Thomson Township/Esko Fire Department, with a high level of professional conduct, will minimize the loss of life and property from fires, natural disasters, and life threatening situations in our community by providing fire prevention, fire suppression, and first responder assistance for
81 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
medical emergencies. Also respond to any other situation in which the department may be of assistance, and to assist other emergency agencies and other communities when requested.”
Finance The annual budget is developed by the department and presented to the Thomson Township Board of Supervisors. Revenues are derived from a municipal tax levy, insurance dividends, refunds, and reimbursements for services, grants, and interest. An external audit of the budget is conducted annually.
The annual approved budgets for EFD are summarized in the following figure:
Figure 59: Esko Budget History 2002 2003 2004 Receipts $46,642 $35,753 $69,282 Expenditures 62,340 33,429 73,389 Source: Township Budget History
The approved CY2006 tax levy for EFD is summarized as follows:
Figure 60: Esko CY2006 Tax Levy Heating $3,300 Electricity/Telephone 2,000 Insurance 8,000 Truck Fuel 600 Truck Service 600 Equipment 12,000 Training 1,000 Expenses/Supplies 7,500 Total Tax Levy Funds $35,000 Source: Township Budget History
82 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
The Thomson Township/Esko Firefighter’s Relief Association is authorized and operates under the mandates of Chapter 69 of the Minnesota Statutes for the benefit of EFD members.
Esko Fire Department members participate without compensation, with the exception of the benefits provided for the Relief Association. The chief receives a monthly stipend of $100.00 and the assistant chiefs receive $25.00 monthly.
A capital inventory is formally accomplished annually by the township. The debt service on the fire station was retired January 1, 2006. There is no cash on EFD premises. The chief and the part- time secretary carry debit cards on the fire department account. Township purchasing rules are in place.
Capital Assets and Resources As stated earlier, the Esko Fire Department operates one fire station. This station is fairly modern and equipped for suitable operations. EFD has the ability to conduct many different types of training exercises for firefighters. The administrative offices are designed well, but additional offices would suite the company officer. Higher ranking officers should have privacy for sensitive issues, and there seems to be shortage of separate offices.
The following evaluation and general condition assessment was conducted on the department’s facility.
83 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Esko Fire Department 13 Thomson Rd.
Built in 1959 and remodeled in 1985 and 1999, this relatively modern, facility consists of five apparatus bays. The station presents few concerns related to maintenance, public access, staff facilities, safety, and efficiency for a volunteer organization.
Any specific problems with this facility can be classified into the following seven categories. This station meets the five basic design considerations multipurpose, muti-user, response to the basic responsibilities of the facility, long life • with a fifty year life span, and the ability to maintain Design: flexibility during its life. This station design was intended only to serve volunteer firefighters. Otherwise, the facility is adequately designed for its functions. Block construction. HVAC system is reported to be • Construction: adequate for winter heating of bays. Station is very clean and well maintained. Building is sprinklered in the meeting room and utility room. Automatic monitored fire alarm currently being installed. Flammable and • combustible liquids are stored in open storage Safety: shelving. Portable extinguishers are located throughout the fire station. Overhead doors have an air impacted reversible system. Emergency generator is a portable plug in system. No exhaust removal system. The station has an • Environment: underground fuel oil tank, STP-3 with anodes for corrosion protection. • Facility has been fully upgraded for ADA Code Compliance: compliance. Adequate storage spaces. Kitchen and meeting • room is efficient for training and fire department Staff Facilities: meetings. Plenty of room to maneuver around vehicles. Relatively efficient building. Good space utilization. • Efficiency: Could use more office space for officers. No other concerns noted.
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The department operates numerous pieces of firefighting apparatus. The following evaluation and general condition assessment was conducted on the primary response apparatus 7.
Pump Tank Meets Unit Esko Fire Year Condition Seats Remarks GPM Size NFPA
Equipment neatly stored, but not all T-703 1992 Very Good 250 2000 2 Yes equipment mounted, no problems noted.
No problems T-705 1974 Fair 350 1250 2 Yes noted. Scheduled to retire in 2006.
SCBAs not secured in bracket. Well E-711 2001 Very Good 1250 1000 5 Yes equipped, neatly stored, but not all equipment mounted, no problems noted.
SCBAs not secured in bracket. Well E-707 1985 Excellent 1250 1000 5 Yes equipped, neatly stored, but not all equipment mounted, no problems noted.
Equipment neatly stored, but not all B-706 1990 Good 250 200 2 Yes equipment mounted, no problems noted.
SCBA's not secured in bracket. Does not R-708 1986 Fair N/A N/A 2 carry full inventory of ISO required equipment for a service truck.
7 Apparatus Rating Chart is located in the Appendix.
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Staffing Operationally, the EFD is comprised of the fire chief, two assistant chiefs, three captains, a training officer, a medical officer, a safety officer, a public education officer, and 17 firefighters including fifteen first responders and three EMT’s. Operational officers are appointed by the fire chief.
Figure 61: Esko Fire Department Membership
Administrative and Support Staffing The administrative and support staff for the Thomson Township/Esko Fire Department is provided by the fire chief, the department’s part-time secretary, and the township clerk/treasurer.
Operational Staffing Currently, EFD has 27 active volunteer members with a cap of 35 members. Minimum staffing for pumpers is targeted at five personnel; the first responder vehicle is two. The officer in charge may modify the staffing requirement on an incident by incident basis.
Service Delivery EFD provides fire, rescue, and first responder medical services to its service area as dispatched by the Carlton County Sheriff’s Office, although the closest emergency response resource is not necessarily dispatched to incidents. The chief has designated the EFD resources that should
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respond by nature incident after notification by the Carlton County Sheriff’s Office. All members have a voice pager and ten members are assigned two-way radios.
There is minimal pre-incident planning done by the department. Those that have been completed are filed in the station. MSDS form are received at the fire department and filed at the station.
An incident command and accountability system have been established, but are inconsistently implemented. A formal, regional mutual aid system is in place through the Minnesota Fire and Rescue Mutual Aid Program (FIREMAP) and the Minnesota Incident Management Team referred to as MNICS. A hazardous materials team is available from the City of Duluth.
Standards of Coverage Currently, the EFD has not established standards of coverage.
Emergency Medical Services EFD provides a first responder medical service with fifteen certified first responders, three EMT’s, and a first responder-equipped vehicle. The Cloquet Fire Department provides patient transport for the majority of EFD’s service area, with Carlton Fire Department providing transport service in the remaining southernmost portion of the district. Advanced life support also comes from Cloquet.
The EFD six-year response workload is summarized in the following figure:
Figure 62: EFD Six Year Response Summary Fire 106 Rupture, Explosion, Overheat 4 Rescue, EMS 409 Hazardous Condition, No Fire 34 Service Call 25 Good Intent Call 74 False Alarm, False Call 35 Severe Weather 3 Total 690 Source: EFD Fire Chief
This summary represents an average of approximately 68 rescue, first responder incidents per year and an average of approximately 47 fire responses per year. The fire loss recorded for CY2000 through CY2005 was $1,126,100.
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Deployment Strategy / Response Time Capabilities Esko Fire Department maintains one fire station within its response area. The following map displays the total primary response area of the agency as well as the station location. In addition, shaded polygons demonstrate those areas within a four-, six-, and eight-minute travel time of the station (does not include turnout time). Non-shaded areas are beyond an eight-minute travel time.
Figure 63: Esko/Thomson Fire Department Current Station Deployment
Response Time Performance Esko Fire Department does not utilize records management software that is compliant with the National Fire Incident Reporting System. No individual incident data was submitted from which response time performance analysis could be conducted. However, dispatch data from the Sheriff’s Department was made available and utilized for workload analysis.
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Figure 64: Esko/Thomson Fire Workload by Activity
Esko/Thomson Fire: Workload by Activity, 2004-2005
Other 5%
Fire 32%
EMS 63%
Incident volumes decreased in Esko over the past two year’s. Any plans for growth in this area, if fulfilled, will reverse this trend.
The Esko Fire Department does not operate an ambulance service in addition to its fire protection operations. Esko FD does, however, respond to medical calls as a first responder. This type of call accounts for 63 percent of incident volume attributed to Esko within the Sheriff’s database.
The following charts show how activity and demand changes for Esko Fire Department based on time of day, day of week, and month of year.
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Figure 65: Esko/Thomson Fire Workload by Time of Day
Esko/Thomson Fire: Workload by Hour of Day, 2004-2005
12.00%
10.00%
8.00%
6.00%
4.00%
2.00%
0.00% 0100 0200 0300 0400 0500 0600 0700 0800 0900 1000 1100 1300 1400 1500 1600 1700 1800 1900 2000 2100 2200 2300 Noon Midnite
Requests for fire services begin to accelerate at 5:00am and become uneven for most of the day, but generally increases until mid-afternoon when a general decline in activity continues to onto midnight. When incident volumes are viewed by the day of the week, peak volumes occur on Tuesdays and Fridays, with declining volumes afterwards.
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Figure 66: Esko/Thomson FD Workload by Day of Week
Esko/Thomson FD: Workload by Day of Week, 2004-2005
18.00%
16.00%
14.00%
12.00%
10.00%
8.00%
6.00%
4.00%
2.00%
0.00% SUN MON TUE WED THU FRI SAT
When incident volumes are examined throughout the months of the year, as shown in the following figure, fire service requests peak in April, as it does with several departments in Carlton County. Higher volumes are experienced in the fall and early winter months of the year.
Figure 67: Esko/Thomson FD Workload by Month of Year
Esko/Thomson FD: Workload by Month of Year, 2004-2005
14.00%
12.00%
10.00%
8.00%
6.00%
4.00%
2.00%
0.00% JAN FEB MAR APR MAY JUN JUL AUG SEP OCT NOV DEC
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Training Competencies The EFD has a designated training officer to administer their department’s training program. The training officer is assisted by the other operational officers in providing in-house training.
New members must be at least eighteen years of age, possess a high school diploma or equivalent, serve a six months probation period, and successfully complete an approved Firefighter I and First Responder course. Probationary members must wear a red triangle on their helmet indicating they are not qualified for interior firefighting.
Members must have a mandatory basic safety orientation complete Firefighter I before approved for emergency fire response. There are no minimum State certifications for fire response. In-house training is provided by the operational officers as coordinated by the department’s training officer. Consistent officer training is not provided, and lesson plans are not utilized. Minimum physical ability testing is conducted, and minimum skills competencies are informally observed during in- house training.
Members must successfully complete an NFPA 1583 8 medical examination at entrance and every two years after.
EFD members maintain the following certifications:
Figure 68: Esko Fire Department Training Certifications 1001 Firefighter II 15 1002 Driver/Operator – General 1 1002 Driver/Operator – Pump 1 1021 Fire Officer I 1 1021 Fire Officer II 3 1021 Fire Officer III-VI 1 1031 Fire Inspector 1 1033 Fire Investigator 1 Life Safety Code 1 EMS – First Responder 13 EMS – EMT Basic 3 Source: EFD Chief
8 NFPA 1583: Health Related Fitness Programs for Fire Fighters , 2000
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During Calendar Year 2005, thirty members participated in a total of 24 training sessions comprising 1,220.5 hours of training. This is an average of approximately 40.7 hours per member for the year.
Current Risk Mitigation EFD provides station tours and public fire education programs during Fire Prevention Week to local schools. The department also participates with the local Lions Club during their summer Esko Fun Day .
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Kettle River Volunteer Fire Department
General Description The Kettle River Volunteer Fire Department (KRVFD) functions as a volunteer firefighter association and operates as a department within the city of Kettle River. The department is formed under the laws of the State of Minnesota (Statute 412.221, subd. 17) and granted authority to provide fire and emergency medical services as part of their mission. The department’s jurisdiction encompasses the entire city of Kettle River. In addition, the department maintains contracts with Automba Township, Beaver Township, Kalevala Township, Silver Township, and Split Rock Township to provide emergency response. The response area includes urban city development, suburban neighborhoods, a significant amount of the rural areas of Carlton County, as well as a portion of Aitkin County.
KRVFD provides emergency services to a population of 1,120 in an area of roughly 144 square miles. The city accounts for only 0.4 square miles of the protection area. These services are provided from one station located within the city of Kettle River in Carlton County. The department was re-evaluated in 2000 by the Insurance Services Office Inc., and currently has an ISO rating of 7 within five road miles of the Kettle River fire station, and within 1000 ft. of a public fire hydrant. A Class 9 will be applied to properties within five road miles of the Kettle River fire station, but beyond the 1000 ft. of a public fire hydrant. A Class 10 applies to properties beyond five road miles of a fire station. The department has access to pressurized hydrants only within the city limits.
The department maintains a fleet of vehicles including two fire engines, one water tender, and one wildland vehicle.
There are currently 21 individuals involved in delivering these services to the jurisdiction. The department has a volunteer chief, and 20 line volunteer personnel. Of the roster of employees, 21 are assigned to the operations division. The department has a maximum limit of 25 volunteers. The primary staffing coverage for all emergency response is provided by volunteers. Volunteers are on an on-call basis and participate in the delivery system as their schedules permit. Volunteers are recalled via plectrons, a few voice pagers, and a community siren system. All volunteers are also issued a two-way radio. In addition to the Kettle River volunteers, the organization has access to
94 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
the County mutual aid system, as well as mutual aid agreements with Sturgeon Lake, Willow River, Kerrick, and McGregor.
Structure and Governance The organization’s authority to provide service is gained through the city charter, as well as contracts with the effected townships, and from the State of Minnesota. The fire chief position is appointed by the city council, for a term is five years. Authority of the fire chief is clearly defined by city policy and the department SOP manual, and written policies are in place within the SOP manual setting the roles of the fire chief and other department members. The fire chief and mayor shall determine qualifications of volunteer fire fighters through interview, and shall be empowered to accept volunteers based on city council approval of a request for additional volunteers. The fire chief has full authority to expel or terminate volunteers.
Acceptable financial controls are in place. Unity of command is defined and everyone reports to the fire chief through their respective officer. The operating division uses a top-down hierarchy with one division defined, that being emergency delivery. Department programs are defined, but limited. Formal job descriptions are not maintained. Kettle River volunteers are governed by their SOP manual which was adopted by the city council. The chief’s span of control is very manageable.
Minimal planning elements are in place. An organizational vision has not been established nor has a mission statement been adopted. Foundational administrative policies are adopted and reviewed for consistency; and each member is provided a copy. Critical issues and challenges are identified. Future challenges are also identified and posted. An abbreviated annual report is prepared by the fire chief and presented to the city council. Minimal training records are maintained within the organization. However, exposure records are not maintained. Fire reports are maintained and submitted to the State Fire Marshals Office.
Finance The annual budget is developed and presented to the city council for approval. Once approved, the fire chief manages the budget. Acceptable financial controls are established. A spending limit has not been placed on the fire chief. There is no external audit preformed. The current revenue sources consist of the general fund budget, contract fees, fund raisers, and grants. Additionally, the department has a capital improvement fund of $19,030. Currently, there are no pending grants.
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The organization has a fire truck loan payment of $8,205 annually. Purchasing controls are in place and monitored by the city clerk. Purchase orders are not used.
Capital Assets and Resources As stated earlier, the Kettle River Fire Department operates one fire station. This station is fairly adequate and equipped for suitable volunteer fire fighting operations. Kettle River Fire Department has the ability to conduct many different types of training exercises for firefighters.
This station has no offices for the chief of any other officers.
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The following evaluation and general condition assessment was conducted on the station.
Kettle River 3977 Main Street
Built in 1970, this one story, 3,200 square foot facility consists of three apparatus bays. This structure blends in well with its surroundings A large common area with kitchen and dining facilities appears to provide for meetings and other functions.
Any specific problems with this facility can be classified into the following seven categories.
Located on the main street in town this firehouse is • Design: readily identified. Storage is in short supply throughout the building. Concrete block and steel construction with a 4/12 pitch roof reported to be four years old as of past • Construction: replacement. The building is heated with gas forced air. No visible or reported structure concerns noted or observed. • This building is not ADA compliant. There were no Safety: automatic overhead door stops operating. Exhaust removal system not present. No on-site • Environment: SCBA or oxygen storage. No environmental concerns noted. • Code Compliance: Not ADA compliant. • Staff Facilities: Cramped area for donning turnout noted. • Insufficient space in bays causes storage and Efficiency: movement problems.
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The department operates numerous pieces of firefighting apparatus. The following evaluation and general condition assessment was conducted on the primary response apparatus. 9
Pump Tank Meets Unit Kettle River Year Condition Seats Remarks GPM Size NFPA
E-480 1996 Good 1250 1000 2 Yes No problems noted
E-485 1967 Fair 500 500 2 No High Mileage.
T-482 1984 Fair N/A 2225 2 No High Mileage
Although an older B-485 1979 Fair 300 250 2 No apparatus, it appears to be maintained.
Staffing Staffing is provided by 21 on-call volunteers. The volunteer fire chief spends additional time in the office meeting organizational needs. Job descriptions have not been established for all officers. The fire chief is an appointed position with a term of five year; controlled by the city council.
Administrative and Support Staffing All support work is provided by the current staff as an administrative staff is non-existent.
9 Apparatus Rating Chart included in the Appendix.
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Operational Staffing The current staffing consists of 21 on-call volunteers. Volunteers are currently used within the organization to provide the delivery system. Department SOPs provide guidance for response on all calls. Typically, a minimum of two members respond on the first due piece of equipment. No turnout time has been established; nor is there a response time performance goal in place.
Service Delivery Incident Preparation and Management Pre-fire plans have not been developed for the target hazards. Training is provided on major occupancies to enhance emergency delivery. ICS is used on all major incidents; and when needed, the regional system is put in place. A formal accountability system is in place and used on most incidents. A hazardous materials team is available from the City of Duluth. The incident commander can ask for additional apparatus; however, there is no automatic station move-up system in place.
Standards of Coverage No standard of coverage has been adopted.
Emergency Medical Services The department provides First Responder medical response. Mercy Hospital, located in Moose Lake, provides the emergency transport service for the department.
Deployment Strategy / Response Time Capabilities Kettle River Volunteer Fire Department maintains one fire station within its response area. The following map displays the total primary response area of the agency as well as the station location. In addition, shaded polygons demonstrate those areas within a four-, six-, and eight- minute travel time of the station (does not include turnout time). Non-shaded areas are beyond an eight-minute travel time.
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Figure 69: Kettle River VFD Current Station Deployment
Response Time Performance Kettle River VFD does not utilize records management software that is compliant with the National Fire Incident Reporting System. No individual incident data was submitted from which response time performance analysis could be conducted. However, dispatch data from the Sheriff’s Department was made available and utilized for workload analysis.
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Figure 70: Kettle River VFD Workload by Activity Type
Kettle River Fire: Workload by Activity Type, 2004-2005
EMS Other 20% 27%
Fire 53%
The department provides a variety of services including fire suppression, victim rescue, First Responder emergency medical response, first responder-level hazmat response, and limited public fire safety education. The department received 16 calls for service in the past year, of which 20 percent were of a medical nature, while 80 percent were fire or service related. It is important to note that the department only started to respond as First Responders in November of 2005.
Incident records are identical over two years, with a rather low call volume which is typical for a rural department. The following charts show how activity and demand changes for Kettle River Volunteer Fire Department based on time of day, day of week, and month of year.
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Figure 71: Kettle River VFD Workload by Time of Day
Kettle River Fire: Workload by Hour of Day, 2004-2005
14.00%
12.00%
10.00%
8.00%
6.00%
4.00%
2.00%
0.00% 0100 0200 0300 0400 0500 0600 0700 0800 0900 1000 1100 1300 1400 1500 1600 1700 1800 1900 2000 2100 2200 2300 Noon Midnite
Requests for fire services are infrequent in the overnight hours, while the peak activity occurs at about 10:00am. Call volumes peak again in the afternoon and continue into the late evening.
As seen in the following figure, the fire service, incident volumes follow an uneven pattern to a peak into the middle of the week, a decrease on Wednesdays to rise again until Saturday.
Figure 72: Kettle River VFD Workload by Day of Week
Kettle River FD: Workload by Day of Week, 2004-2005
25.00%
20.00%
15.00%
10.00%
5.00%
0.00% SUN MON TUE WED THU FRI SAT
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When incident volumes are examined throughout the months of the year, as shown in the following figure, fire service requests peak in April and in the early fall.
Figure 73: Kettle River VFD Workload by Month of Year
Kettle River FD: Workload by Month of Year, 2004-2005
25.00%
20.00%
15.00%
10.00%
5.00%
0.00% JAN FEB MAR APR MAY JUN JUL AUG SEP OCT NOV DEC
Training and Competencies Recruit training is provided in basic safety, basic firefighting, S-130/S-190, and hazmat awareness. Volunteers are on probation for six months and then voted on by the membership. Volunteers must complete Fire Fighter 1 within 30 months from department entry date. No minimal training levels have been established for each position. Records are maintained on the department computer. The department currently has no certified fire instructors. Fire officer training is not consistently offered. Training is offered once per month for two hours, either before or after the business meeting. Each member must receive a minimum of 24 hours of training per year. The department does not provide a physical ability test for existing volunteers; and minimal skill testing is not provided to any volunteer.
Current Risk Mitigation There is currently no code enforcement preformed by the organization. The department is not involved in new construction. The fire department is not required to signoff before a certification of occupancy is issued. There is no key-box entry system in place. The organization does not perform any business inspections. The volunteers do some minimal public education at the local schools. Fire origin and cause is conducted by the fire chief. All arson investigation is conducted by the State Fire Marshal’s Office.
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Mahtowa Fire Department
General Description The Mahtowa Fire Department (MFD) is an independent volunteer fire department organized under the laws of the State of Minnesota. The response area is primarily rural in nature.
The Insurance Services Office has assigned a rating of 9 to the jurisdiction.
Structure and Governance The Mahtowa Fire Department is a volunteer fire department organized under the laws of the State of Minnesota. Currently, the department is operating under a draft set of standard operating guidelines.
Operationally, the MFD is comprised of the fire chief, one assistant chief, one captain, two training officers a safety officer and 16 firefighters. The membership of the fire department elects all officers annually.
The following figure summarizes the department’s officer in charge chain of command:
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Figure 74: Mahtowa FD Chain of Command
Fire Chief
Assistant Fire Chief
Captain
Training Training Officer Officer
Senior Firefighter
MFD uses a top-down hierarchy. The unity of command and span of control for the organization is defined and appears appropriate. Job descriptions are not maintained.
Programs, goals, and objectives are not documented however; they are discussed at budget formulation.
Capital Assets and Resources As stated earlier, the Mahtowa Fire Department operates one fire station. This station is fairly adequate and equipped for volunteer fire fighting operations. Mahtowa Fire Department has the ability to conduct many different types of training exercises for firefighters. This station has no offices for the chief of any other officers.
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The following evaluation and general condition assessment was conducted on the station.
Mahtowa Fire Department 2790 County Rd 141
This older, one-story pole building, 2,840 square foot facility consists of two apparatus bays. The station presents few concerns related to maintenance, public access, staff facilities, safety, and efficiency for a volunteer organization.
Any specific problems with this facility can be classified into the following seven categories.
• This station designed was intended only to serve Design: volunteer firefighters. • Construction: Metal pole building design. No local or monitored alarm systems. Overhead doors do not have any reversible system. There • Safety: are no fire extinguishers located through out the building. Small, cramped apparatus bays present significant backing hazards. No onsite generator. • Environment: No exhaust removal system. • Facility is not ADA compliant. Exiting code issues. Code Compliance: No two-gender considerations. • Kitchen and meeting room is efficient for training Staff Facilities: and fire department meetings. Movement from staff areas to apparatus is • Efficiency: hampered. Relatively efficient building. Could use more office space for other officers.
The department operates numerous pieces of firefighting apparatus. The following evaluation and general condition assessment was conducted on the primary response apparatus.
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Pump Tank Meets Unit Mathowa Fire Year Condition Seats Remarks GPM Size NFPA Picture Not all equipment E-675 2003 Excellent 1250 1000 2 Yes mounted, no Unavailable problems noted. Picture E-676 1974 Fair 750 3100 2 No Water tank does not Unavailable have baffles.
Unit is T-678 1980 Fair 125 1500 2 No underpowered with a gas engine.
B-677 1992 Good 1250 1000 5 No Non-approved plastic gas cans.
U-674 1984 Fair N/A N/A 4 No First responder unit.
Staffing MFD is comprised of the fire chief, one assistant chief, one captain, two training officers, a safety officer, and 16 firefighters. No other data provided.
Service Delivery During Calendar Year 2005, MFD responded to 11 fire and 39 medical incidents.
A formal, regional mutual aid system is in place through the Minnesota Fire and Rescue Mutual Aid Program (FIREMAP) and the Minnesota Incident Management Team referred to as MNICS. A hazardous materials team is available from the City of Duluth.
Deployment Strategy / Response Time Capabilities Mahtowa Fire Department maintains one fire station within its response area. The following map displays the total primary response area of the agency as well as the station location. In addition,
107 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
shaded polygons demonstrate those areas within a four-, six-, and eight-minute travel time of the station (does not include turnout time). Non-shaded areas are beyond an eight-minute travel time.
Figure 75: Mahtowa FD Current Station Deployment
Response Time Performance Mahotwa Fire Department does not utilize records management software that is compliant with the National Fire Incident Reporting System (NFIRS). No individual incident data was submitted from which response time performance analysis could be conducted. However, dispatch data from the Sheriff’s Department was made available and utilized for workload analysis.
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Figure 76: Mahtowa FD Workload by Activity Type 2004-2005
Mahtowa Fire: Workload by Activity Type, 2004-2005
Other 11%
Fire 25%
EMS 64%
Incident records have increased slightly over two years with a rather low call volume which is, as stated previously, typical for a rural department. Mahtowa FD responds to requests for medical assistance at a First Responder level, which account for 64% of the department’s service demand. The following charts show how activity and demand changes for Mahtowa Fire Department based on time of day, day of week, and month of year.
Figure 77: Mahtowa FD Workload by Time of Day
Mahtowa Fire: Workload by Hour of Day, 2004-2005
12.00%
10.00%
8.00%
6.00%
4.00%
2.00%
0.00% 0100 0200 0300 0400 0500 0600 0700 0800 0900 1000 1100 1300 1400 1500 1600 1700 1800 1900 2000 2100 2200 2300 Noon Midnite
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Requests for fire services have a chaotic pattern over the hours of a day, in part due to low call volume which doesn’t facilitate a smoothed appearance of consistent patterns with larger volumes. Despite this, however, when examined by day of week, incident volume decreases into the mid week and rises into the weekend, as seen in the following figure.
Figure 78: Mahtowa FD Workload by Day of Week
Mahtowa FD: Workload by Day of Week, 2004-2005
20.00% 18.00% 16.00% 14.00% 12.00% 10.00% 8.00% 6.00% 4.00% 2.00% 0.00% SUN MON TUE WED THU FRI SAT
When incident volumes are examined throughout the months of the year, an uneven pattern results with fire service requests peaking in the early fall.
Figure 79: Mahtowa FD Workload by Month of Year
Mahtowa FD: Workload by Month of Year, 2004-2005
16.00%
14.00%
12.00%
10.00%
8.00%
6.00%
4.00%
2.00%
0.00% JAN FEB MAR APR MAY JUN JUL AUG SEP OCT NOV DEC
110 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Training Competencies The training officers administer the MFD training program. They are assisted by other operational officers in providing in-house training.
The Mahtowa Fire Department members govern the appointment of new members.
New member applicants must: • Be at least 18 years old • Live or work in the fire service area • Have a valid Minnesota driver’s license • Have a good driving record.
New members must: • Attend or have an excused absence all monthly meetings and training within a six month probation period. • Attend all fire calls within a six month probation period • Obtain Firefighter I certification within a two year period following the probation period.
General membership must: • Meet the annual fifteen point minimum o One point - meetings o One point – training o One point – hall maintenance o One point – excused absence • Attend or be excused from all fire calls • Maintain a minimum of twenty-four hours of firefighter training annually
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Training was conducted on the following topics during CY2005:
Month Topic January Bloodborne Pathogens February SCBA and Turnout Gear March Search and Rescue & Landing Zones April Wildland Fires May Firewise Inspections June Vehicle Operations July Water Supply August Water Supply September SCBA Fit Tests & Pulmonary Exams October Ladders, Chimney Fires, Ventilation November Communications December Hazardous Materials
Current Risk Mitigation Mahtowa currently does not perform code enforcement or inspection activities. The department does not have trained or certified investigators.
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Mercy Hospital Ambulance Service
General Description Mercy Hospital Ambulance Service (MHAS), located in Moose Lake, is a hospital service district and collects an ad-valorum tax. It is regional faculty rated as a Trauma IV level. The ambulance transport service is a branch of the hospital; authority to provide emergency medical transport has been made part of their mission. The department’s jurisdiction encompasses the entire city limits of Moose Lake and a large portion, approximately 1/3, of southern Carlton County. In addition, MHAS has a contract to provide service to a portion of Pine County. The ambulance service area (ASA) includes urban city development, suburban neighborhoods, and a significant amount of the rural areas of Carlton County.
The department’s services are provided from one facility located within the city of Moose Lake in Carlton County. The hospital maintains a fleet of two Type-three medic units.
The hospital provides a part-time ALS transport system. The EMT-Basics have received a waiver from the Emergency Medical Services Registry Board to function beyond the scope of a Basic. This waiver allows the medic to function similarly to an EMT-I. The department received 330 calls for service in the previous year.
There are 15 individuals involved in delivering services to the jurisdiction. The department has a paid administrator and 14 casual workers. Of the roster of employees, 15 are assigned to the operations division. The primary staffing coverage for all emergency response is provided by a casual work force. A casual worker can signup for shifts of either 12 or 24 hours. The casual worker must either live within four minutes of the hospital, or stay in quarters during the assigned shifts.
Structure and Governance The organization’s authority to provide service is gained through hospital policy and from the State of Minnesota. The ambulance department supervisor is hired by the hospital administration. Authority of the MHAS administrator is clearly defined by job description. Written policies and protocols are in place, setting the roles of the administrator and other department employees. The administrator shall determine qualifications of medics and shall be empowered to accept casual
113 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
workers based on an extensive interview and a review of credentials. The administrator has final authority to expel or terminate employees.
Acceptable financial controls are in place. Unity of command is defined and everyone reports to the administrator. The operating division uses a top-down hierarchy with one division defined, that being emergency transport. Department programs are not defined, or monitored for compliance. Formal job descriptions are not maintained. The administrator’s span of control is very manageable. Minimal planning elements are in place. An organizational vision and mission statement has not been established. Critical issues and challenges are not identified. Future challenges are also not identified.
Finance The annual budget is developed and presented to the hospital administration for approval. Once approved, the budget is managed by the hospital financial department. Acceptable financial controls are established. The current revenue sources consist of billing for service and direct funding from the hospital.
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Capital Assets and Resources As stated earlier, the Mercy Hospital Ambulance Service operates one EMS station, located within the hospital building.
Mercy Hospital 100 4th Street
Mercy Hospital is a full service hospital for general health problems and emergency needs for the residents of Carlton County.
Any specific problems with this facility can be classified into the following seven categories.
This building is designed as a hospital with an • Design: emergency department that meets the general needs of the community.. • This is a concrete block building in good condition. Construction: It has a flat roof. • Safety: No problems noted. • Environment: No problems noted. • Code Compliance: No problems noted. • Staff Facilities: No problems noted. • Efficiency: No problems noted.
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The Hospital operates two pieces of emergency medical apparatus. The following evaluation and general condition assessment was conducted on the primary response apparatus. 10
Pump Tank Meets Unit Mercy Hospital Year Condition Seats Remarks GPM Size NFPA Put in service recently, this unit is a fully stocked transporting EMS A-1 2004 Excellent N/A N/A 2 Yes ambulance housed at Mercy Hospital. It appears to be well maintained and takes runs from a heated bay. This unit is aging quickly. It appears A-2 2000 Fair N/A N/A 2 No to be well maintained and takes runs from a heated bay.
Staffing The staffing is provided by one paid administrator and 14 casual workers. Staffing is on a signup basis, after the work schedule is posted. The administrator also spends additional time in the office meeting the needs of the organization. Job descriptions have been written for the administrator only. The administrator is a hired position working on an hourly basis.
Administrative and Support Staffing All support work is provided by the current and hospital staff. The hospital has its own in-house billing/collections department.
Service Delivery Emergency Medical Services The department provides ALS transport whenever a paramedic is on duty. Currently, the department has two paramedics, the administrator being one of them. The hospital’s medical director provides oversight for all EMS response, and provides QA for all paramedics, if applicable.
10 Apparatus Rating Chart included in the Appendix.
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The department follows the Medical Director’s approved medical protocols. The ambulances are dispatched through the County dispatching system.
Deployment Strategy / Response Time Capabilities Mercy Hospital Ambulance Service maintains one location within its response area. The analysis of response time capability for this facility, as well as all EMS locations, is discussed elsewhere in this report.
Response Time Performance No individual incident data was submitted by Mercy Hospital Ambulance Service from which response time performance analysis could be conducted. However, dispatch data from the Sheriff’s Department was made available and utilized for workload analysis.
Figure 80: Mercy Ambulance Workload History, 2004-2005
Two-Year Workload History
340 330 320 310 300 290 280 2004 2005 Fire 299 330
Incident records have increased 10 percent over two years, with a similar call volume to that of Carlton Ambulance. Such increases in EMS call volume are to be expected again, as population totals increase and demographics evolve.
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The following charts show how activity and demand changes for Mercy Ambulance based on time of day, day of week, and month of year.
Figure 81: Mercy Ambulance Workload by Time of Day
Mercy Ambulance: Workload by Hour of Day, 2004-2005
8.00%
7.00%
6.00%
5.00%
4.00%
3.00%
2.00%
1.00%
0.00% 0100 0200 0300 0400 0500 0600 0700 0800 0900 1000 1100 1300 1400 1500 1600 1700 1800 1900 2000 2100 2200 2300 Noon Midnite
Requests for ambulance services are lower in the overnight hours, but are greatest in the morning hours, gradually declining throughout the day and evening. Incident records examined by day of week, indicate weekday stability and more frequent requests on the weekend.
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Figure 82: Mercy Ambulance Workload by Day of Week
Mercy Ambulance: Workload by Day of Week, 2004-2005
18.00%
16.00%
14.00%
12.00%
10.00%
8.00%
6.00%
4.00%
2.00%
0.00% SUN MON TUE WED THU FRI SAT
When incident volumes are examined throughout the months of the year, a pattern results with fire service requests higher in the early summer and fall than the winter months. The following figure illustrates this pattern.
Figure 83: Mercy Ambulance Workload by Month of Year
Mercy Ambulance: Workload by Month of Year, 2004-2005
12.00%
10.00%
8.00%
6.00%
4.00%
2.00%
0.00% JAN FEB MAR APR MAY JUN JUL AUG SEP OCT NOV DEC
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Moose Lake Fire Department
General Description The Moose Lake Fire Department (MLFD) is duly organized and ordained by the Moose Lake Area Fire Protection District as provided for under the laws of the State of Minnesota. The services of the department include, but are not limited to fire suppression, rescue, and fire education. The department, as prescribed by Resolution number 1-1990 “…shall consist of a fire chief, assistant fire chief, and not less than twenty (20) firefighter’s.” MLFD provides first-responder medical service to its district and contract areas.
The department’s response district is defined by the Moose lake Area Fire Protection District and those areas determined by contract with neighboring jurisdictions. The response area is primarily rural in nature.
The city of Moose Lake has wet hydrants serving approximately 20 percent of the response area. There are eight to ten dry hydrants across the response area. The Insurance Services Office has assigned a rating of 7 to the jurisdiction.
The department has 23 volunteer members (capped at 35) staffing one pumper, two water tankers, two brush units, a rescue truck, and a first responder vehicle. The Statutes of the State of Minnesota authorizes the fire chief to administer and enforce the Minnesota Uniform Fire code (MUFC) including fire investigation. EMS transport services are provided by the Mercy Hospital.
Structure and Governance The Moose Lake Fire Department’s authority to provide service is defined by Resolution #1-1990 of the Moose Lake Area Fire Protection District. The fire department, fire chief, assistant chief, and other officer’s duties and responsibilities are clearly defined by resolution. Policy-setting roles of the governing body and officers are appropriately documented.
By resolution, the board of the fire district “…has the authority to set policy or regulations for the operation of the department. All SOPs, policies, or regulations shall be submitted for board approval before becoming part of the operational manual of the department.” The department has
120 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
regular meetings on the second Wednesday of each month at 1900 hours. The fire chief presides over the meetings.
Operationally, the MLFD is comprised of the fire chief, a safety officer, one assistant chief, one captain, a first lieutenant, a second lieutenant, and 17 firefighters including eight first responders and one EMT. The membership of the fire department recommends their elected candidate for fire chief to the board of the fire district. The board may accept and approve the department’s recommendation, or appoint their own individual. The board may remove the fire chief for cause. All other operational officers are appointed by the fire chief.
The following figure summarizes the department’s organizational structure:
Figure 84: Moose Lake Operations Organizational Structure
Fire District Board
Chief
Assistant Chief
First Lieutenant Second Lieutenant Safety Officer Captain Secretary Training Training
Firefighters/EMTs/First Responders
The unity of command and span of control for the organization is defined and appears appropriate. MLFD uses a top-down hierarchy. Operating divisions are identified as Office of Operations, Office of Safety and Training, and Office of Emergency Services . Formal job descriptions are maintained, but are currently not up-to-date. The chief recommends appointments and terminations to the district board. A formal annual report is not produced, although operational responses are documented and transmitted monthly to the board and the State Fire Marshal.
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Programs, goals, and objectives are not formally discussed; however, the department has established a five year operations acquisition priority for budget purposes. This plan is used in negotiations with the Moose Lake Area Fire District Board.
MLFD has adopted the following mission statement: “To minimize loss of life and property for the area served by the Moose Lake Area Fire Department from fires, natural disasters, life threatening situations and to assist other emergency agencies. To perform these services in an efficient manner by maintaining effective fire prevention education, emergency response, fire suppression, and training.”
MLFD sees its critical issues and future challenges as their current lack of training with neighboring fire departments and the lack of hazardous materials training and resources.
Finance The annual budget is developed by the department and presented to the Moose Lake Area Fire Protection District Board. Revenues are derived from the special fire taxing district, fund raising activities, grants, and donations. An external audit of the budget is conducted annually. All funds received, including contracts for service to neighboring communities, are deposited to the district’s general fund.
As authorized by Moose Lake Area Fire Protection District Resolution Number 1-1993, the MLFD may charge for services not covered by current contracts as follows:
Rescue Squad Calls $150.00 per hour, plus $5.00 per hour per responder $50.00 per hour for use of the rescue boat or ATV
Vehicle Fires $150.00 per hour for a pumper $75.00 per hour for personnel carrier $5.00 per hour for responding personnel
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Additional Charges Whenever an incident requires the use of expendable supplies, or the rental of equipment or contracting for services, these charges will be billed in addition to the rates above.
The annual approved and actual budgets for MLFD are summarized in the following figure:
Figure 85: Moose Lake Budget Summaries 2004 2005 2006 Approved $231,000 $231,000 $231,000 Source: MLFD Fire Chief
The Moose Lake Firefighter’s Relief Association is authorized and operates under the mandates of Chapter 69 of the Minnesota Statutes for the benefit of MLFD members.
Moose Lake Area Fire Protection District Resolution Number X-1992 authorizes compensation to members for responses. “Compensation at a rate to be determined by the Board will be paid to members responding to valid alarms for the Moose Lake Fire Department. Command officers and other ranks within the department will receive additional compensation as set forth by the District. Other events, which the department participates in, may be compensated if it is a contracted event in which payment is received from a contractor.”
Compensation is paid on an hourly basis at $6.00 per hour for all incidents dispatched from the County dispatch center. Command officers receive a quarterly stipend of $200.00.
MLFD shares their building with the district and the Moose Lake Police Department. The department is currently carrying debt service for a pumper, a tanker, and their station. Capital inventory is formally accomplished annually. There is no cash on MLFD premises, and credit cards are not used. District purchasing rules are in place.
Capital Assets and Resources The Moose Lake Fire Department operates one fire station. This station is fairly modern and equipped for suitable operations. Moose Lake Fire Department has the ability to conduct many different types of training exercises for firefighters. This station has no offices for the chief or other
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officers. Higher ranking officers should have privacy for sensitive issues, and there seems to be shortage of separate offices.
The following evaluation and general condition assessment was conducted on the station.
Moose Lake Fire Department 600 Highway 73
Built in 2000, this one-story pole building consists of seven apparatus bays. The station presents few concerns related to maintenance, public access, staff facilities, safety, and efficiency for a volunteer organization.
Any specific problems with this facility can be classified into the following seven categories. • This station designed was intended only to serve Design: volunteer firefighters. • Construction: Metal pole building design. No local or monitored alarm systems. Plenty of • Safety: room in apparatus floor. No flammable liquids stored in the fire station. • No exhaust removal system. Underground storage Environment: tanks. Facility is not ADA compliant. Exiting code issues. • No two-gender considerations. Plumbing systems Code Compliance: not up to code. Electrical service has non- compliant modifications. Inadequate kitchen, storage, locker, and shower • spaces. Cramped sleeping areas. Bays are Staff Facilities: extremely small, with little working area around trucks. • Relatively efficient building. Could use more office Efficiency: space for other officers. Good space utilization.
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The department operates numerous pieces of firefighting apparatus. The following evaluation and general condition assessment was conducted on the primary response apparatus 11 .
Pump Tank Meets Unit Year Condition Seats Remarks GPM Size NFPA Equipment not mounted in compartments. SCBAs not secured E-445 2002 Very Good 1250 900 5 Yes in bracket. Compartment are not clean. Does not carry full inventory of ISO required equipment. Equipment not mounted in compartments. SCBAs not secured E-447 1981 Fair 500 2000 2 No in bracket. Compartments are not clean. Does not carry full inventory of ISO required equipment. Equipment not mounted in compartments. SCBAs not secured in bracket. Compartments are T-448 2001 Very Good 500 2000 2 Yes not clean and equipment is in need of maintenance. Does not carry full inventory of ISO required equipment. Equipment not mounted in compartments. SCBAs not secured in bracket. Compartments are R-444 1985 Poor N/A N/A 5 No not clean and equipment is in need of maintenance. Does not carry full inventory of ISO required equipment for a service truck.
11 Apparatus Rating Chart is located in the Appendix.
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Pump Tank Meets Unit Year Condition Seats Remarks GPM Size NFPA
B-449 2004 Very Good 125 200 2 Yes No problems noted.
Staffing MLFD is a volunteer fire department comprised of the fire chief, a safety officer, one assistant chief, one captain, a first lieutenant, a second lieutenant, and 17 firefighters including eight first responders and one EMT. The lieutenants serve as training officers.
Administrative and Support Staffing The membership of the fire department recommends their elected candidate for fire chief to the fire district board. The board may accept and approve the department’s recommendation, or appoint their own individual. The board may remove the fire chief for cause. The fire department and the Moose Lake Area Fire Protection District share the services of a secretary.
Operational Staffing Currently, MLFD has 24 active volunteer members with a cap of 35 members. Minimum staffing for pumpers is targeted at four personnel; the first responder vehicle is two.
Service Delivery MLFD provides fire, rescue, and first responder medical services to its service area as dispatched by the Carlton County Sheriff’s Office, although the closest emergency response resource is not necessarily dispatched to incidents. Silver, Moose Lake, Windemere Townships and the City of Moose Lake contract with MLFD for their fire protection and first-responder services
An incident command and accountability system have been established, but are inconsistently implemented. A formal, regional mutual aid system is in place through the Minnesota Fire and Rescue Mutual Aid Program (FIREMAP) and the Minnesota Incident Management Team referred to as MNICS. A hazardous materials team is available from the City of Duluth. A local mutual aid agreement is in place with Kettle River, Sturgeon Lake, and Willow River fire departments.
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The MLFD response workload is summarized in the following figure:
Figure 86: Moose Lake Response Summary Type of Incident CY2002 CY2003 CY2004 Fire 113 92 58 1st Responder 164 169 184 Mutual Aid 8 32 40 Total 285 325 282 Source: MLFD Fire Chief
Standards of Coverage Currently, the Moose Lake Fire Department has not established standards of coverage.
Emergency Medical Services MLFD provides a first responder medical service with ten certified first responders and a first responder equipped vehicle. Mercy Hospital provides patient transport and ALS services to MLFD’s response area, and is dispatched with MLFD by the Carlton County Sheriff. MLFD utilizes Mercy Hospital’s medical director, protocols, and medical quality assurance program.
Deployment Strategy / Response Time Capabilities Moose Lake Fire Department maintains one fire station within its response area. The following map displays the total primary response area of the agency as well as the station location. In addition, shaded polygons demonstrate those areas within a four-, six-, and eight-minute travel time of the station (does not include turnout time). Non-shaded areas are beyond an eight-minute travel time.
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Figure 87: Moose Lake Current Station Deployment
Response Time Performance Moose Lake Fire Department does not utilize records management software that is compliant with the National Fire Incident Reporting System (NFIRS). No individual incident data was submitted from which response time performance analysis could be conducted. However, dispatch data from the Sheriff’s Department was made available and utilized for workload analysis.
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Figure 88: Moose Lake Workload History 2004-2005
Two-Year Workload History
220 215 210 205 200 195 190 185 2004 2005
Figure 89: Moose Lake Workload by Activity Type, 2004-2005
Moose Lake Fire: Workload by Activity Type, 2004-2005
Other 6% Fire 21%
EMS 73%
Incident records have increased slightly over two years. As one of Carlton County’s growing communities, this trend can be expected to continue. Moose Lake responds to requests for medical assistance at a First Responder level, which account for 73 percent of the department’s service demand. The following charts show how activity and demand changes for Moose Lake Fire Department based on time of day, day of week, and month of year.
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Figure 90: Moose Lake Workload by Time of Day
Moose Lake Fire: Workload by Hour of Day, 2004-2005
9.00%
8.00%
7.00%
6.00%
5.00%
4.00%
3.00%
2.00%
1.00%
0.00% 0100 0200 0300 0400 0500 0600 0700 0800 0900 1000 1100 1300 1400 1500 1600 1700 1800 1900 2000 2100 2200 2300 Noon Midnite
Incident volume for Moose Lake FD begins to build at 7:00amM and begins to vary within a four percent range throughout the day before gradually declining to a low at 2:00am. When examined by day of week, incident volume maintains about a two percent range between the days, as seen in the following figure.
Figure 91: Moose Lake Workload by Day of Week
Moose Lake FD: Workload by Day of Week, 2004-2005
18.00%
16.00%
14.00%
12.00%
10.00%
8.00%
6.00%
4.00%
2.00%
0.00% SUN MON TUE WED THU FRI SAT
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When incident volumes are examined throughout the months of the year, an uneven pattern results with fire service requests peaking in March and during the summer and the early fall.
Figure 92: Moose Lake Workload by Month of Year
Moose Lake FD: Workload by Month of Year, 2004-2005
12.00%
10.00%
8.00%
6.00%
4.00%
2.00%
0.00% JAN FEB MAR APR MAY JUN JUL AUG SEP OCT NOV DEC
Training Competencies The first and second lieutenants administer the MLFD training program. They are assisted by other operational officers in the provision of in-house training.
New members must be at least eighteen years of age, possess a high school diploma or equivalent, serve a six months probation period, and successfully complete an approved Firefighter I course within a year of being accepted. All members must possess a valid Minnesota Drivers License with proof of current insurance, and live or work in the response area. After completion of Firefighter I and two years of on-the-job-training, the member may become qualified to drive and operate pumpers and join the rescue squad.
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Qualifications for pumper operator include: • Successful completion of driver training • Completion of NFPA requirements for pump operation • Completion of skills testing • Defensive driving training
Qualifications for rescue squad include: • Completion of MLFD basic rescue • Familiarization of all aspects of rescue • Additional Votec rescue training • First Responder or EMT training • Attendance at a reasonable amount of in-house training
Members must have a mandatory basic safety orientation before being approved for emergency fire response. There are no minimum State certifications for fire response. In-house training is provided by the operational officers, although MLFD does not currently have certified instructors. Consistent officer training is not provided, and lesson plans are not utilized. Minimum physical ability testing is not conducted, and minimum skills competencies are informally observed during in-house training.
Training was conducted on the following topics during CY2005 and 2004:
Figure 93: Moose Lake Training Topics Month 2005 Topics 2004 Topics January CPR Apparatus Inventories February CPR CPR/AED Recertification March Walk-Through/Assisted Living Homes April Wildland Fire Fighting May Pumps and Water Movement Pumper Training June Mercy Rescue Combined Training Driver Training July No Training (Prepare for 7/4 parade) No Training (Prepare for 7/4 parade) August Hose Testing & Water Movement Hose Testing & Water Movement Sept Off-Road Rescue Gateway Clinic Walk-Through Oct SCBA Training Pumper Training Nov Hazardous Materials New Products Review Dec Blood-borne, Harassment Blood-borne, Harassment Source: MLFD Fire Chief
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During Calendar Year 2005, twenty-four members participated in nine training sessions comprising 659 hours of training. This is an average of approximately 27.46 hours per member for the year. Calendar Year 2004 involved ten training sessions; 350.5 hours of training with an approximate average of 14.60 hours of training per member for the year.
Current Risk Mitigation MLFD provides station tours and public fire education programs during Fire Prevention Week to two local elementary schools.
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Perch Lake Volunteer Fire Department
General Description The Perch Lake Volunteer Fire Department (PLVFD) operates as a volunteer firefighter association and operates in cooperation and unity with the Town of Perch Lake Board of Supervisors, and further, is formed under the laws of the State of Minnesota (Statute 412.221, subd. 17). The organization is granted authority to provide fire and emergency medical services as part of its mission. The department’s jurisdiction encompasses the entire township of Perch Lake.
Additionally, Perch Lake VFD provides emergency response for Fond du Lac Reservation. Through an intergovernmental agreement with the Department of Natural Resources (DNR), Perch Lake VFD responds into St. Louis County for wildland fires. In addition, the department maintains a contract with Cloquet Fire Department for an additional fire engine on all structure fires. The response area includes urban city development, suburban neighborhoods, and a significant amount of the rural areas of Carlton County.
PLVFD provides emergency services to a population of about 998 in an area of roughly 36 square miles. The township accounts for 100 percent of the protection area. These services are provided from one station located within the Township of Perch Lake in Carlton County. The department currently has an ISO rating of 7 within five road miles of the Perch Lake fire station, and a rating of 10 beyond five road miles. There are no pressurized hydrants for the department to access. However, a few dry hydrants have been established throughout the response area.
The department maintains a fleet of vehicles including one fire engine, three water tenders, one wildland vehicle, one rescue squad, and one reserve engine.
There are currently 15 individuals involved in delivering services to the jurisdiction. The department has a volunteer chief and 14 line volunteer personnel. Of the roster of employees, 15 are assigned to the operations division. The primary staffing coverage for all emergency response is provided by volunteers. Volunteers are on an on-call basis, and participate in the delivery system as their schedules permit. In addition to the Perch Lake volunteers, Cloquet Fire Department will furnish not less than three firefighters and a structural engine on each fire call in the township.
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Structure and Governance The organization’s authority to provide service is gained through the township and from the State of Minnesota. The fire chief position is an elected position for a one year term. Authority of the fire chief is clearly defined by organizational by-laws; and written policies are in place within the by- laws setting the roles of the fire chief and other department members. The fire chief shall determine qualifications of fire fighters and shall be empowered to accept volunteers based on the organization’s recommendations. The organizational by-laws provide guidance to expel or terminate volunteers.
Minimal financial controls are in place. Unity of command is defined and everyone reports to the fire chief through their respective officer. The operating division uses a top-down hierarchy with one division defined, that being emergency delivery. Department programs are defined but limited. Formal job descriptions are maintained in the by-laws. Perch Lake volunteers are governed by their by-laws. The chief’s span of control is very manageable.
Minimal planning elements are in place. An organizational vision has not been established, however, a mission statement has been adopted. Foundational administrative policies have been adopted, reviewed for consistency; and each member is provided a copy. Critical issues and challenges are identified. Future challenges are also identified and posted. An abbreviated annual report is prepared by the fire chief and presented to the township board. Minimal training records are maintained within the organization. Additionally, exposure records are not maintained. Fire reports are maintained and submitted to the State Fire Marshals Office.
Finance The annual budget is developed and presented to the township for approval. Once approved, the fire chief manages the budget. Minimal financial controls are established. The fire chief has a spending limit of $50.00 before the purchasing committee must be involved. There is no external audit preformed. The current revenue sources consist of the general fund budget, fund raisers, and grants. There are no pending grants. The organization does not have any existing debt. Minimal purchasing controls are in place, and purchase orders are not used.
Capital Assets and Resources As stated earlier, the Perch Lake Fire Department operates one fire station. This station is fairly adequate and equipped for volunteer fire fighting operations. Perch Lake Volunteer Fire
135 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Department has the ability to conduct many different types of training exercises for firefighters. This station has no offices for the chief or other officers. Higher ranking officers should have privacy for sensitive issues, and there seems to be shortage of separate offices.
The following evaluation and general condition assessment was conducted on the station.
Perch Lake 2779 Big Lake Rd. Built in 1986, this one story, 3,000 square foot facility consists of four apparatus bays. The building is easily identified and easy to enter from the roadway. This facility is fully functional for its demands and yet has great potential for expansion.
Any specific problems with this facility can be classified into the following seven categories.
The building is a combination of pole type with • steel siding connected to a wood frame ordinary Design: construction on one end. The roof appears to be in good condition as well as the overall structure. There is a community meeting room adjacent to • Construction: the fire hall via a short corridor. Storage is almost non- existent. No other issues identified. • This building is not ADA compliant. There were no Safety: automatic overhead door stops operating. • No exhaust removal system present. No Environment: underground tanks or other hazards noted. There is an ADA compliant automatic door opener • Code Compliance: on the front of the public assembly room and handrails in the restrooms. A very cramped multi-function room is the only dedicated space for the fire personnel. The • Staff Facilities: building seemed adequate for small meetings and the bays could support light maintenance of apparatus. • Efficiency: Good use of very limited space.
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The department operates numerous pieces of firefighting apparatus. The following evaluation and general condition assessment was conducted on the primary response apparatus. 12
Pump Tank Meets Unit Perch Lake Year Condition Seats Remarks GPM Size NFPA
This unit may be over weight with a T-761 1986 Fair 500 2500 2 No single axle and 2,500. gallons of water.
E-760 2003 Excellent 1250 1000 2 No No problems noted.
T-764 1994 Good N/A 1500 2 No No problems noted.
No problems noted. Unit is B-762 1978 Fair 100 250 2 No scheduled to be replaced in spring of 2006.
T-763 1960 Poor N/A 3000 2 No Retired Forest Service Unit.
Staffing The staffing is provided by 15 on-call volunteers. The volunteer fire chief spends additional time in the office meeting organizational needs. Job descriptions have been established, in the by-laws, for all officers. The fire chief is an elected position with a term of one year. This is controlled by the volunteer organization.
12 Apparatus Rating Chart included in the Appendix.
137 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
Administrative and Support Staffing All support work is provided by the current staff as an administrative staff is non-existent.
Operational Staffing Current staffing consists of 15 on-call volunteers. Volunteers are currently used within the organization to provide delivery of services. Department SOPs provide guidance for staffing levels on all calls. Typically, a minimum of three members respond on the first due piece of equipment. A three minute turnout time has been established; however, there is no response time performance goal in place.
Service Delivery Incident Preparation and Management Pre-fire plans have been developed for some target hazards. Training is provided to enhance emergency delivery. ICS is used on all major incidents; and when needed, the regional system is put in place. A formal accountability system is in place and used on most incidents. A hazardous materials team is available from the City of Duluth. The incident commander can ask for additional apparatus; however, there is no automatic station move-up system in place.
Standards of Coverage A goal of one engine and two tankers has been established for all structure fires. A total of four personnel will be required to roll the engine and one tanker. These pieces of equipment should respond simultaneously. If four personnel are not available, dispatch is notified to re-tone and advise Cloquet Fire Department. Available personnel are authorized to respond. Response standards have also been established for mutual aid, first responder, chimney fires, and wildland fires.
Emergency Medical Services The department provides First Responder medical response. Cloquet Fire Department provides the emergency transport service for the township.
Deployment Strategy / Response Time Capabilities Perch Lake Volunteer Fire Department maintains one fire station within its response area. The following map displays the total primary response area of the agency as well as the station
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location. In addition, shaded polygons demonstrate those areas within a four-, six-, and eight- minute travel time of the station (does not include turnout time). Non-shaded areas are beyond an eight-minute travel time.
Figure 94: Perch Lake Current Station Deployment
Response Time Performance Perch Lake Volunteer Fire Department does not utilize records management software that is compliant with the National Fire Incident Reporting System (NFIRS). No individual incident data was submitted from which response time performance analysis could be conducted. However, dispatch data from the Sheriff’s Department was made available and utilized for workload analysis.
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Figure 95: Perch Lake Workload History 2004-2005
Two-Year Workload History
80 78 76 74 72 70 68 66 64 62 2004 2005
The department provides a variety of services including fire suppression, victim rescue, First Responder emergency medical response, first responder-level hazmat response, and limited public fire safety education. The department received an average of 48 calls per year for service in the past five year, of which approximately 84 percent were of a medical nature, while only 16 percent was fire related.
Figure 96: Perch Lake Workload by Activity Type, 2004 - 2005
Perch Lake Fire: Workload by Activity Type, 2004-2005
Other Fire 8% 8%
EMS 84%
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Incident records have increased slightly over two years, although the volume of calls is modest due to its rural nature. The potential for this trend to continue may occur because of its proximity to larger population centers. Perch Lake VFD responds to requests for medical assistance at a First Responder level, which accounts for the majority of the department’s service demand. The following charts show how activity and demand changes for Perch Lake Volunteer Fire Department based on time of day, day of week, and month of year.
Figure 97: Perch Lake Workload by Time of Day
Perch Lake Fire: Workload by Hour of Day, 2004-2005
9.00%
8.00%
7.00%
6.00%
5.00%
4.00%
3.00%
2.00%
1.00%
0.00% 0100 0200 0300 0400 0500 0600 0700 0800 0900 1000 1100 1300 1400 1500 1600 1700 1800 1900 2000 2100 2200 2300 Noon Midnite
Incident volume exhibits a widely varied pattern but is generally higher during the day and evening hours which follows a typical pattern of human activity. When examined by day of week, incident volume is relatively stable earlier in the week. Wednesday, historically, have been lighter volume days, than the remainder of the week as seen in the following figure.
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Figure 98: Perch Lake Workload by Day of Week
Perch Lake FD: Workload by Day of Week, 2004-2005
20.00% 18.00% 16.00% 14.00% 12.00% 10.00% 8.00% 6.00% 4.00% 2.00% 0.00% SUN MON TUE WED THU FRI SAT
When incident volumes are examined throughout the months of the year, a more even pattern results with fire service requests peaking in July and during the early fall.
Figure 99: Perch Lake Workload by Month of Year
Perch Lake FD: Workload by Month of Year, 2004-2005
14.00%
12.00%
10.00%
8.00%
6.00%
4.00%
2.00%
0.00% JAN FEB MAR APR MAY JUN JUL AUG SEP OCT NOV DEC
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Training and Competencies Recruit training is provided in basic safety, basic firefighting, Fire Fighter I (F/F I), and hazmat awareness. Volunteers are on probation for six months and then are voted on by the membership. Volunteers must complete F/F 1 before they can make entry. Minimal training levels have been established for each position, and records are maintained on the department computer. Fire officer training is not consistently offered. Training is offered once per month. Each member must receive a minimum of 24-hours of training per year. The department does not provide a physical ability test for existing volunteers; and minimal skill testing is not provided to any volunteer.
Current Risk Mitigation There is currently no code enforcement preformed by the organization. The department is not involved in new construction. The fire department is not required to signoff before a certification of occupancy is issued. There is no key-box entry system in place. The organization does not perform any business inspections. The volunteers do minimal public education at the local schools. Fire origin and cause is conducted by Cloquet Fire Department. All arson investigation is conducted by the State Fire Marshal’s Office.
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Scanlon Fire and Rescue
General Description The Scanlon Fire and Rescue (SF&R) operates as a volunteer fire department and as a department within the city of Scanlon, and further, is formed under the laws of the State of Minnesota (Statute 412.221, subd. 17) and granted authority to provide fire and emergency medical services as part of their mission. The department’s jurisdiction encompasses the entire city of Scanlon. The response area includes urban city development and suburban neighborhoods.
SF&R provides emergency services to a population of about 839 in an area of roughly 0.8 square miles. The city accounts for 100 percent of the protection area. These services are provided from one station located within the city of Scanlon in Carlton County. The department was re-evaluated in 2000 by the Insurance Services Office Inc., and currently has an ISO rating of Class 7 within five road miles of the Scanlon fire station and within 1000 ft. of a public fire hydrant. A Class 9 will be applied to properties within five road miles of the Scanlon fire station, but beyond the 1000 ft. of a public fire hydrant. The department has access to pressurized hydrants within the 90 percent of the city limits.
The department maintains a fleet of vehicles including two fire engines, one rescue, and one wildland vehicle.
There are currently 25 individuals involved in delivering services to the jurisdiction. The department has a volunteer chief and 24 line volunteer personnel. Of the roster of employees, 25 are assigned to the operations division. The department has a maximum limit of 25 volunteers. The primary staffing coverage for all emergency response is provided by volunteers. Volunteers are on an on- call basis and participate in the delivery system as their schedules permit. In addition to the Scanlon volunteers, the organization has access to the County mutual aid system.
Structure and Governance The organization’s authority to provide service is gained through the city charter and from the State of Minnesota. The fire chief position is elected by the organization, for a two year term. Authority of the fire chief is clearly defined by city policy and written policies are currently being written. The fire
144 Carlton County, Minnesota 2005 - 2006 Ambulance, Rescue, and Fire Study
chief determines qualifications of fire fighters through interview, and is empowered to accept volunteers. The fire chief has full authority to expel or terminate volunteers.
Acceptable financial controls are in place. Unity of command is defined and everyone reports to the fire chief through their respective officer. The operating division uses a top-down hierarchy with one division defined, that being emergency delivery. Department programs are defined but limited. Formal job descriptions are not maintained. Scanlon volunteers are governed by their by-laws and SOP manual. The chief’s span of control is very manageable.
Minimal planning elements are in place. An organizational vision has not been established nor has a mission statement been adopted. Limited foundational administrative policies are adopted, reviewed for consistency; and each member is provided a copy. Critical issues and challenges are identified. An abbreviated annual report is prepared by the fire chief and presented to the city council. Minimal training records are maintained within the organization. Exposure records are not maintained. Fire reports are maintained and submitted to the State Fire Marshals Office.
Finance The annual budget is developed and presented to the city council for approval. Once approved, the fire chief manages the budget. Acceptable financial controls are established. A spending limit has not been placed on the fire chief. Their external audit is preformed in conjunction with the city. The current revenue sources consist of the general fund budget, fund raisers, and grants. Currently, there are no pending grants. The organization has a fire truck lease payment of $8,091 monthly. Purchasing controls are in place and monitored by the city clerk. Purchase orders are not used.
Capital Assets and Resources As stated earlier, Scanlon Fire & Rescue operates one fire station. This station is fairly adequate and equipped for volunteer fire fighting operations. SF&R has the ability to conduct many different types of training exercises for firefighters. This station has no offices for the chief or other officers.
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The following evaluation and general condition assessment was conducted on the station.
Scanlon Fire and Rescue 2801 Dewey Ave This one story, 2,000 square foot facility consists of two apparatus bays. This structure was originally built as the local school, but now serves the city in multiple functions.
Any specific problems with this facility can be classified into the following seven categories.
This structure was never intended to be used as a • fire station. It appears the building had been Design: converted several times over the years as community needs have changed. Concrete block and brick construction with a flat • Construction: roof. Gas fired boiler for heat installed two years prior. Reported to have had roof replaced in 1982. This building is not sprinklered nor ADA compliant. • Safety: The bay doors do not have automatic safety door stops. There is a central shared kitchen. There is no exhaust removal system in place and environmental issues are consistent with era of • building construction. The bay area is very Environment: cramped, and one must travel through a cramped maintenance area to get from the office or meeting area to the bays. • Code Compliance: ADA details remain incomplete. Turnout gear is stored on hooks in the bay. There • Staff Facilities: are residential laundry facilities present. Storage area is very limited. This building was never intended to serve • emergency services, and basically is being used Efficiency: for many city functions and houses fire apparatus as an afterthought.
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The department operates numerous pieces of firefighting apparatus. The following evaluation and general condition assessment was conducted on the primary response apparatus. The Condition Assessment Rating Chart can be found in the Appendix.
Pump Tank Meets Unit Scanlon FD Year Condition Seats Remarks GPM Size NFPA
T-803 2005 Excellent 1250 1000 13211 Yes No problems noted.
Gasoline E-805 1974 Fair 750 3100 2 No engine with an extensive repair list.
B-807 1998 Fair N/A 250 2 No No problems noted.
No properly A-806 1991 Poor N/A N/A 2 No equipped for emergency transportation.
Staffing The staffing is provided by 25 on-call volunteers. The volunteer fire chief spends additional time in the office meeting the needs of the organization. Job descriptions have not been established for all officers. The fire chief is an elected position with a two-year term. This is controlled by the volunteer association.
Administrative and Support Staffing All support work is provided by the current staff as an administrative staff is non-existent.
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Operational Staffing The current staffing consists of 25 on-call volunteers. Volunteers are currently used within the organization to provide the delivery system. Department SOPs provide guidance for response on all calls. Typically, a minimum of four members respond on the first due piece of equipment. No turnout time has been established; nor is there a response time performance goal in place.
Service Delivery Incident Preparation and Management Pre-fire plans have not been developed for target hazards. Training is provided on major occupancies to enhance emergency delivery. ICS is used on all major incidents; and when needed, the regional system is put in place. A formal accountability system is in place and used on most major incidents. A hazardous materials team is available from the City of Duluth. The incident commander can ask for additional apparatus; however, there is no automatic station move-up system in place.
Standards of Coverage No standard of coverage has been adopted.
Emergency Medical Services The department provides First Responder medical response. Cloquet FD provides the emergency transport and ALS service for the department.
Deployment Strategy / Response Time Capabilities Scanlon Fire & Rescue maintains one fire station within its response area. The following map displays the total primary response area of the agency as well as the station location. In addition, shaded polygons demonstrate those areas within a four-, six-, and eight-minute travel time of the station (does not include turnout time). Non-shaded areas are beyond an eight-minute travel time.
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Figure 100: Scanlon Fire & Rescue Current Station Deployment
Response Time Performance SF&R does not utilize records management software that is compliant with the National Fire Incident Reporting System (NFIRS). No individual incident data was submitted from which response time performance analysis could be conducted. However, dispatch data from the Sheriff’s Department was made available and utilized for workload analysis.
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Figure 101: SF&R Workload History, 2004 - 2005
Two-Year Workload History
60 50
40 30 20
10 0 2004 2005
The department provides a variety of services including fire suppression, victim rescue, first responder emergency medical response, first responder-level hazmat response, and limited public fire safety education. The department received an average of 70 calls for service per year in the past three years. In 2005, 87 percent of the calls for service were of a medical nature, while only 13 percent were fire or service related.
Figure 102: Scanlon Fire Workload by Activity Type, 2004 - 2005
Scanlon Fire: Workload by Activity Type, 2004-2005
Other Fire 5% 8%
EMS 87%
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Records show that incident have increased slightly over two years, although the volume of calls is modest due to the size of its response area. The potential for this trend to continue may occur because of its proximity to Cloquet. The following charts show how activity and demand changes based on time of day, day of week, and month of year.
Figure 103: Scanlon Fire & Rescue Workload by Time of Day
Scanlon Fire: Workload by Hour of Day, 2004-2005
12.00%
10.00%
8.00%
6.00%
4.00%
2.00%
0.00% 0100 0200 0300 0400 0500 0600 0700 0800 0900 1000 1100 1300 1400 1500 1600 1700 1800 1900 2000 2100 2200 2300 Noon Midnite
Incident volume exhibits a widely varied pattern; the peaks are at 8:00am, Noon, and 7:00pm. When examined by day of week, incident volume is lighter during the middle of the week and on Saturdays.
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Figure 104: Scanlon Fire & Rescue Workload by Day of Week
Scanlon FD: Workload by Day of Week, 2004-2005
25.00%
20.00%
15.00%
10.00%
5.00%
0.00% SUN MON TUE WED THU FRI SAT
When incident volumes are examined throughout the months of the year, significant peaks in demand occur in January and November, with the lightest volume month occurring in June.
Figure 105: Scanlon Fire & Rescue Workload by Month of Year
Scanlon FD: Workload by Month of Year, 2004-2005
20.00% 18.00%
16.00%
14.00% 12.00%
10.00% 8.00%
6.00%
4.00% 2.00%
0.00% JAN FEB MAR APR MAY JUN JUL AUG SEP OCT NOV DEC
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Training and Competencies Recruit training is provided in basic safety, basic firefighting, S-130 S-190, Fire Fighter 1, and hazmat awareness. Volunteers are on probation for six months and then voted on by the membership. No minimal training levels have been established for each position. Records are maintained on the department computer. Fire officer training is not consistently offered. Training is offered every Monday, except the first Monday, which is a business meeting. Each member must receive a minimum of 24 hours of training per year. The department does not provide a physical ability test for existing volunteers; and minimal skill testing is not provided to any volunteer.
Current Risk Mitigation There is currently no code enforcement preformed by the organization. The department is not involved in new construction. The fire department is not required to signoff before a certification of occupancy is issued. There is no key-box entry system in place. The organization does not perform any business inspections. The volunteers do some minimal public education at the local schools. Fire origin and cause is conducted by the fire chief. All arson investigation is conducted by the State Fire Marshals Office.
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Wrenshall Fire Department
General Description The Wrenshall Fire Department (WFD) is duly organized as an entity of Wrenshall, Minnesota. The department is formed under the laws of the State of Minnesota, Statute 412.221, sub.17, and is granted authority to provide fire, rescue, and first responder emergency medical services as part of their mission.
The department’s response district is defined by the city line of Wrenshall, and those areas determined by contract with neighboring jurisdictions. The response area is primarily rural in nature. Wrenshall has five pressurized hydrants in the city, and a number of accessible water sources across the response area. The Insurance Services Office has assigned a rating of Class 7 to the jurisdiction.
The department has 29 volunteer members (capped at 32) staffing two pumpers, a water tanker, a brush unit, and a first responder vehicle. With this resource, WFD provides fire suppression, first- responder EMS, extrication/rescue, and limited public education. While the City of Wrenshall Ordinance #305 - Volunteer Fire Department, delineates a fire marshal position for the department, no code administration or enforcement is done by the department. The Statutes of the State of Minnesota authorize the fire chief to administer and enforce the Minnesota Uniform Fire code (MUFC) including fire investigation. EMS transport services are provided by the City of Carlton.
Structure and Governance The City of Wrenshall’s authority to provide service is clearly defined in municipal charter under a mayor and city council form of government. The fire department and the fire chief’s duties and responsibilities are defined by ordinance. Policy-setting roles of the governing body and officers are appropriately documented.
Pursuant to Ordinance #56, rules and regulations are promulgated “…to provide for rules of order and procedure, and such other requirements deemed necessary to properly and orderly administer and govern the WFD.” The department has regular meetings on the first Monday of each month at 1900 hours, and a quorum of five members is required. The fire chief presides over the meetings.
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Operationally, the WFD is comprised of the fire chief, two assistant chiefs, four captains, 12 first responders, and ten firefighters. The fire chief, two assistant chiefs, four captains, and the secretary/treasurer are elected by the membership every two years. The city council must approve the fire chief appointment.
The following figure summarizes the department’s organizational structure:
Figure 106: Wrenshall FD Operations Organizational Structure
Fire Chief
1st 2nd Assistant Chief Assistant Chief Training Officer Material Mgmt
Senior Captain Captain Captain Captain Safety Officer
First-Responders/Firefighters
Officers of the department are compensated with a modest stipend annually as follows: Fire Chief $1,600 First Assistant Chief 900 Second Assistant Chief 900 Secretary/Treasurer 500
The unity of command and span of control for the organization is defined, and is in order. WFD uses a top-down hierarchy, but clear operating divisions do not exist. Formal job descriptions are maintained, but are currently not up-to-date. The chief has full authority over appointments and may recommend terminations to the city council. An annual report is not produced although operational responses are documented and transmitted to the State Fire Marshal. Programs, goals, and objectives are discussed annually at the January officer’s meeting. WFD has not adopted a mission statement.
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WFD sees its critical issues and future challenges as their current lack of training, the need to replace a 30 year old engine, inability to implement automatic aid for fire responses, and keeping up with the growth of their service area.
Finance The annual budget is developed and presented to the city council. Revenues are derived from the municipal general fund, fund raising activities, grants and donations. An external audit of the budget is conducted annually. Monies from contracts for service to neighboring communities are deposited to the municipal general fund. Funds from donations and fund raisers are deposited into the WFD checking account.
The annual approved and actual budgets for WFD are summarized in the following figure:
Figure 107: Wrenshall FD Budget Summaries 2004 2005 2006 Approved $19,550 $19,828 Actual 22,065 25,272 Proposed 24,085 Source: WFD Fire Chief
The Wrenshall Firefighter’s Relief Association is authorized and operates under the mandates of Chapter 69 of the Minnesota Statutes for the benefit of WFD members.
WFD shares their building with city government and assumes there is no debt service for the structure. Capital inventory is not formally maintained. There is no cash on WFD premises and municipal credit cards are not used. Municipal purchasing rules are in place.
Capital Assets and Resources The Wrenshall Fire Department operates out of one fire station. This station is fairly adequate and equipped for volunteer fire fighting operations. WFD has the ability to conduct many different types of training exercises for firefighters. The administrative offices are designed well, but additional offices would suit the company officer.
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The following evaluation and general condition assessment was conducted on the department’s station.
Wrenshall Fire Department 400 Alochal Rd. Built in 1986, this one-story pole building, 5,200 square foot facility consists of two apparatus bays. The station presents few concerns related to maintenance, public access, staff facilities, safety, and efficiency for a volunteer organization.
Any specific problems with this facility can be classified into the following seven categories.
• This station designed was intended only to serve Design: volunteer firefighters. • Construction: Metal pole building design. No local or monitored alarm systems. Small, • cramped apparatus bays present significant Safety: backing hazards. Out-dated fire extinguishers. No onsite generator. Exits lights not working. • No exhaust removal system. No underground Environment: storage tanks • Code Compliance: Facility is ADA compliant. Adequate kitchen and meeting room, limited • Staff Facilities: storage. Bays are extremely small, with little working area around trucks. Movement from staff areas to apparatus is • Efficiency: hampered. Relatively efficient building. Could use more office space for officers.
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The department operates numerous pieces of firefighting apparatus. The following evaluation and general condition assessment 13 was conducted on the primary response apparatus.
Pump Tank Meets Unit Wrenshall Fire Year Condition Seats Remarks GPM Size NFPA Equipment not mounted in compartments. SCBAs not secured in bracket. Compartments are not clean and equipment is in need of E-650 1994 Good 1250 100 5 Yes maintenance. Should remove the National Standard adaptor on the pump by pass drain. Does not carry full inventory of ISO required equipment. Equipment not mounted in compartments. SCBAs not secured in bracket. Compartments are not clean and equipment is in need of E-653 1978 Fair 750 750 4 No maintenance. Ladders are not maintained. Gas engine unit is under powered. Does not carry full inventory of ISO required equipment.
The exhaust system should be redesigned to T-651 1982 Poor 750 3200 2 No allow fumes to vent behind the cab. Unit not safe for the fire service.
Vehicle may be overweight and may not B-652 1986 Poor N/A N/A 5 No meet the manufactures GVWR. Does not carry full inventory of ISO required equipment.
13 Apparatus Rating Chart is found in the Appendix.
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Staffing WFD is comprised of the fire chief, two assistant chiefs, four captains, one secretary/treasurer, 12 first responders, and ten firefighters. The fire chief serves as a department head for the city.
Administrative and Support Staffing The fire chief and secretary/treasurer are elected every two years and comprise the department’s administrative and support staffing. WFD does not have clerical support, other than through their relationship with the City of Wrenshall.
Operational Staffing WFD is a volunteer fire department with its operational staffing capped at 32 members. Currently, the department has 29 active volunteer members. Members are not compensated, except for the benefits provided through the Wrenshall Firefighter’s Relief Association.
Service Delivery WFD provides fire, rescue, and first responder medical services to its service area as dispatched by the Carlton County Sheriff’s Office, although the closest emergency response resource is not necessarily dispatched to incidents. Silver Brooke, Wrenshall, and Holyoke townships, and the Clear Creek vicinity contract with WFD to provide their fire protection. First responder medical services are provided to the City of Wrenshall, the Wrenshall Township, and Silver Brooke Township.
An incident command and an accountability system have been established, but are inconsistently implemented. A formal, regional mutual aid system is in place through the Minnesota Fire and Rescue Mutual Aid Program (FIREMAP) and the Minnesota Incident Management Team (MNICS). A hazardous materials team is available from the City of Duluth.
A local mutual aid agreement is in place with the following jurisdictions in Carlton County. WFD also has an informal, unwritten mutual aid agreement with the Kerrick Fire Department.
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The Wrenshall Fire Department response workload is summarized in the following figure:
Figure 108: Wrenshall Annual Response Summary Type of Incident CY2001 CY2002 CY2003 CY2004 CY2005* Fire 11 11 15 13 14 1st Responder 35 42 49 52 25 Mutual Aid 4 5 8 9 3 Total 50 58 72 74 42 Source: WFD Fire Chief *Through 10/31
Standards of Coverage Currently, the Wrenshall Fire Department has not established standards of coverage.
Emergency Medical Services WFD provides a first responder medical service with ten certified first responders and a first responder vehicle. The City of Carlton provides basic life support services and patient transport. WFD utilizes Carlton’s medical director, protocols, and medical quality assurance program.
The Carlton County Sheriff’s Office automatically dispatches Carlton to WFD’s first responder incidents for patient transport. Advanced life support must come from the City of Cloquet when not available from the City of Carlton. There is no automatic dispatch protocol for advanced life support services.
Deployment Strategy / Response Time Capabilities Wrenshall Fire Department maintains one fire station within its response area. The following map displays the total primary response area of the agency as well as the station location. In addition, shaded polygons demonstrate those areas within a four-, six-, and eight-minute travel time of the station (does not include turnout time). Non-shaded areas are beyond an eight-minute travel time.
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Figure 109: Wrenshall Fire Department Current Station Deployment
Response Time Performance Wrenshall Fire Department does not utilize records management software that is compliant with the National Fire Incident Reporting System (NFIRS). No individual incident data was submitted from which response time performance analysis could be conducted. However, dispatch data from the Sheriff’s Department was made available and utilized for workload analysis.
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Figure 110: Wrenshall FD Workload History 2004 - 2005
Two-Year Workload History
80 70 60 50 40 30 20 10 0 2004 2005
Figure 111: Wrenshall FD Workload by Activity Type 2004 - 2005
Wrenshall Fire: Workload by Activity Type, 2004-2005
Other 14%
Fire EMS 28% 58%
Incident records have decreased over two years, although the volume of calls is rather low, it is not certain as to the cause of the decrease. WFD responds to requests for medical assistance at a first responder level, which account for 58 percent of the department’s service demand. The following charts show how activity and demand changes based on time of day, day of week, and month of year.
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Figure 112: Wrenshall FD Workload by Time of Day
Wrenshall Fire: Workload by Hour of Day, 2004-2005
9.00%
8.00%
7.00%
6.00%
5.00%
4.00%
3.00%
2.00%
1.00%
0.00% 0100 0200 0300 0400 0500 0600 0700 0800 0900 1000 1100 1300 1400 1500 1600 1700 1800 1900 2000 2100 2200 2300 Noon Midnite
Incident volume exhibits a widely varied pattern; but maintains a relatively higher frequency during the morning and afternoon hours. When examined by day of week, incident volume is lighter during the middle of the week and on higher beginning Fridays through the weekend.
Figure 113: Wrenshall FD Workload by Day of Week
Wrenshall FD: Workload by Day of Week, 2004-2005
25.00%
20.00%
15.00%
10.00%
5.00%
0.00% SUN MON TUE WED THU FRI SAT
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When incident volumes are examined throughout the months of the year, Call volumes are the highest during the spring and fall months.
Figure 114: Wrenshall FD Workload by Month of Year
Wrenshall FD: Workload by Month of Year, 2004-2005
16.00%
14.00%
12.00%
10.00%
8.00%
6.00%
4.00%
2.00%
0.00% JAN FEB MAR APR MAY JUN JUL AUG SEP OCT NOV DEC
Training Competencies The first assistant chief administers the department’s training program. He is assisted by other operational officers in providing in-service training.
Members must have a mandatory basic safety orientation before approved for emergency fire response. There are no minimum State certifications for fire response. First responders must have successfully completed the State of Minnesota, 40-hour First Responder Certification prior to medical response. WFD was awarded a FEMA grant for CY2006 to fund Firefighter I and Firefighter II certification for all members.
In-service training is provided by the operational officers, although WFD does not currently have certified instructors. Consistent officer training is not provided, and lesson plans are not utilized. Minimum physical ability testing is not conducted, and minimum skills competencies are informally observed during in-service training.
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Training was conducted on the following topics during CY2005:
Figure 115: Wrenshall FD Training Topics For 2005 Topic Hours Topic Hours Fire Behavior 3 Extinguishers 3 Ropes 1.5 Ladders 1.5 Fire Streams 6 Forcible Entry 2 Rescue 8.5 Maintenance 16.5 Ventilation 5.5 SCBA 18.5 Salvage & Overhaul 1.5 Ground Cover Fires 1.5 Communications 1 Water Supply 2.5 Apparatus 18.5 Generators/Pumps 9.5 Miscellaneous 22.5 First Responder 67.0 House Burn 5 Gas Plant 1.5 Safety 8 Chimney Fires 1.5 Ambulance Training 1.5 Hose Testing 5 Car Fire Training 1.5 Driver Training 1 TOTAL HOURS PROVIDED - 215 Source: WFD Fire Chief
Twenty-nine members participated in 1,368.5 hours of in-service training during CY2005. This is an average of approximately 47.20 hours per member for the year.
Current Risk Mitigation Wrenshall Fire Department does not participate in code administration or enforcement. While the department’s governing documents address a fire marshal for the organization, the City of Wrenshall handles their code responsibilities through a part-time building inspector. This individual is currently the building official for the city of Cloquet.
Typically, the State Fire Marshal’s Office is notified of suspicious incidents.
WFD presents the Little Wrens fire safety program annually during Fire Prevention Week for pre- school children. The Is Your House Safe community, adult education program is sponsored by the department although considered unsuccessful .
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Wright Volunteer Fire Department
General Description The Wright Volunteer Fire Department is a branch of the city government; created via city ordinance; formed under the laws of the State of Minnesota (Statute 412.221, subd. 17); and granted authority to provide fire and emergency medical services as part of their mission. The department’s jurisdiction encompasses the entire city limits. In addition, the department maintains a contract to provide service to a portion of Carlton County and, as a result, receives additional funding from the affected townships. The response area includes urban city development, suburban neighborhoods, and a significant amount of the rural areas of Carlton County.
The department’s services are provided from one station located within the city of Wright in Carlton County. The department currently has an ISO rating of Class 9 in the city and Class 9 in rural areas. The department has access to no pressurized hydrants district wide.
The department maintains a fleet of vehicles including one fire engine, one water tender, one wildland vehicle, one rescue squad, and one reserve engine.
There are 15 individuals involved in delivering these services to the jurisdiction. The department has a volunteer chief and 14 line volunteer personnel. Of the roster of employees, 15 are assigned to the operations division. The primary staffing coverage for all emergency response is provided by volunteers. Volunteers are on an on-call basis and participate in the delivery system as their schedules permit.
Structure and Governance The organization’s authority to provide service is gained through city ordinance and the State of Minnesota. The fire chief position is an elected position. Authority of the fire chief is clearly defined by organizational by-laws; and written policies are in place within the by-laws setting the roles of the fire chief and other department members. The fire chief determines qualifications of fire fighters and is empowered to accept volunteers based on the organization’s recommendations. He has final authority to expel or terminate volunteers.
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Minimal financial controls are in place. Unity of command is defined, and everyone reports to the fire chief through their respective officer. The operating division uses a top-down hierarchy with one division defined, that being emergency delivery. Department programs are not defined, nor monitored for compliance. Formal job descriptions are maintained in the city ordinance.
Wright volunteers are governed by their by-laws. The chief’s span of control is very manageable. Minimal planning elements are in place. An organizational vision has not been established. Foundational administrative policies have not been developed or adopted. Critical issues and challenges are not identified. Future challenges are also not identified. An annual report is not produced. Minimal training records are maintained within the organization. Exposure records are not maintained. Fire reports are maintained and submitted to the State Fire Marshals Office.
Finance The annual budget is developed and presented to the city and the effected townships. Once approved, the cost is equality split between the participating entities. Minimal financial controls are established. The fire chief has a spending limit of $50.00, before the general membership must be involved. No external audit is preformed. The current revenue sources consist of the general fund budget, fund raisers, and grants. There are no pending grants. The organization does not have any existing debt. Minimal purchasing controls are in place; and purchase orders are not used.
Capital Assets and Resources As stated earlier, the Wright Fire Department operates one fire station. This station is fairly adequate and equipped for volunteer fire fighting operations. Many different types of training exercises for Wright volunteers are offered through Perch Lake Fire Department. This station has no offices for the chief or other officers.
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The following evaluation and general condition assessment was conducted on the station.
Wright Address not available
This one story, 3,500 square foot facility consists of four apparatus bays. This building was built as a volunteer station and is suited well for its intended use.
Any specific problems with this facility can be classified into the following seven categories.
• The floor layout serves the occupant’s needs well Design: and the bays are easy to maintain and well lighted. • This is a frame structure has a pitched roof. The Construction: whole structure is in overall good condition. • There are no automatic overhead door stops Safety: present. Fire extinguishers arepresent throughout. • No exhaust removal system present. No Environment: underground tanks or other hazards noted. • Code Compliance: No code issues noted • Plenty of bay space to don turnout gear, and there Staff Facilities: is a spacious room for training and meetings. • Efficiency: This is an easy maintenance facility.
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The department operates numerous pieces of firefighting apparatus. The following evaluation and general condition assessment was conducted on the primary response apparatus. Definitions of the condition assessment ratings can be found in the Appendix.
Pump Tank Meets Unit WRIGHT FIRE Year Condition Seats Remarks GPM Size NFPA
E-751 2005 Excellent 1000 1000 Yes No problems noted.
Vehicle is old T-754 1973 Poor N/A 2000 2 No for the fire service.
B-752 1984 Fair 750 500 2 No No problems noted
U-755 1984 Fair N/A N/A 2 No No problems noted.
Staffing The staffing is provided by 15 on-call volunteers. The volunteer fire chief spends additional time in the office meeting organizational needs. Job descriptions have been written for the fire chief only. The fire chief is an elected position with a term of four years. This is controlled by the volunteer organization.
Administrative and Support Staffing All support work is provided by current staff, as an administrative staff is non-existent.
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Operational Staffing The current staffing consists of 15 on-call volunteers; volunteers being used to provide the delivery of services. Typically, a minimum of two members respond on the first due piece of equipment. No minimal turnout time has been established and a response time performance goal is not in place.
Service Delivery Incident Preparation and Management Pre-fire plans have not been developed for any of the city occupancies. Training is provided to enhance emergency delivery. ICS is used on all major incidents; and when needed, the regional system is put in place. A formal accountability system is in place, and used on most incidents. A hazardous materials team is available from the City of Duluth. The incident commander can ask for additional apparatus; however, there is no automatic station move-up system in place.
Standards of Coverage No standard of coverage has been adopted.
Emergency Medical Services The department provides first responder medical response. Cromwell provides transport ambulance service.
Deployment Strategy / Response Time Capabilities Wright Volunteer Fire Department maintains one fire station within its response area. The following map displays the total primary response area of the agency as well as the station location. In addition, shaded polygons demonstrate those areas within a four-, six-, and eight-minute travel time of the station (does not include turnout time). Non-shaded areas are beyond an eight-minute travel time.
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Figure 116: Wright VFD Current Station Deployment
Response Time Performance Wright Volunteer Fire Department does not utilize records management software that is compliant with the National Fire Incident Reporting System (NFIRS). No individual incident data was submitted from which response time performance analysis could be conducted. However, dispatch data from the Sheriff’s Department was made available and utilized for workload analysis.
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Figure 117: Wright VFD Workload History, 2004 - 2005
Two-Year Workload History
24 23 22 21 20 19 18 2004 2005
The department provides a variety of services including fire suppression, victim rescue, first responder emergency medical response, first responder-level hazmat response, minimal code enforcement, and limited public fire safety education. The department received 20 calls for service in the pervious year, of which 77 percent were of a medical nature, while only 23 percent were fire related.
Figure 118: Wright FD Workload by Activity Type, 2004 - 2005
Wright Fire: Workload by Activity Type, 2004-2005
Other 7% Fire 16%
EMS 77%
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Incident records have decreased over two years, although the volume of calls is rather low, this is typical for a rural department. The following charts show how activity and demand changes based on time of day, day of week, and month of year.
Figure 119: Wright FD Workload by Time of Day
Wright Fire: Workload by Hour of Day, 2004-2005
16.00%
14.00%
12.00%
10.00%
8.00%
6.00%
4.00%
2.00%
0.00% 0100 0200 0300 0400 0500 0600 0700 0800 0900 1000 1100 1300 1400 1500 1600 1700 1800 1900 2000 2100 2200 2300 Noon Midnite
Incident volume exhibits a widely varied pattern; but maintains a generally higher frequency during the morning and afternoon hours. When examined by day of week, incident volume is lighter during the middle of the week, and on higher beginning Wednesdays through Saturdays.
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Figure 120: Wright FD Workload by Day of Week
Wright FD: Workload by Day of Week, 2004-2005
30.00%
25.00%
20.00%
15.00%
10.00%
5.00%
0.00% SUN MON TUE WED THU FRI SAT
When incident volumes are examined throughout the months of the year, call volumes are the highest during April and June. March has had no calls within the records for the past two years.
Figure 121: Wright VFD Workload by Month of Year
Wright FD: Workload by Month of Year, 2004-2005
16.00%
14.00%
12.00%
10.00%
8.00%
6.00%
4.00%
2.00%
0.00% JAN FEB MAR APR MAY JUN JUL AUG SEP OCT NOV DEC
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Training and Competencies Recruit training is provided in basic safety, basic firefighting, Fire Fighter I, and hazmat awareness. Volunteers are on probation for six months, and then voted on by the membership. Volunteers must complete F/F 1 before they can make entry. Minimal training levels have been established for each position, and records are maintained on the department computer. Fire officer training is not consistently offered. Training is offered twice per month, for about three to four hours. Each member receives an average of 40 hours of training per year. The department does not provide a physical ability test for existing volunteers; and minimal skill testing is not provided to any volunteer.
Currently, there is no code enforcement preformed by the organization. The department is not involved in new construction. The fire department is not required to signoff before a certification of occupancy is issued. There is no key entry system in place. The organization does not perform any business inspections. The volunteers do some minimal public education at the local schools. Fire origin and cause is conducted by the fire chief. All arson investigation is conducted by the State Fire Marshals Office.
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Barnum Fire Department (no field visit)
The Barnum Fire Department declined to participate in the study. The following information was derived from data available to the project team.
Facility We were able to ascertain that this is a volunteer fire department and operates one fire station. The following evaluation and general condition assessment was conducted on the station.
Barnum Fire Department 3842 Church Street This older, one-story pole building consists of five apparatus bays. No information was made available for this study.
Any specific problems with this facility can be classified into the following seven categories.
• Design: No information was made available for this study. • Construction: No information was made available for this study. • Safety: No information was made available for this study. • Environment: No information was made available for this study. • Code Compliance: No information was made available for this study. • Staff Facilities: No information was made available for this study. • Efficiency: No information was made available for this study.
Deployment Strategy / Response Time Capabilities Barnum Fire Department maintains one fire station within its response area. The following map displays the total primary response area of the agency as well as the station location. In addition, shaded polygons demonstrate those areas within a four-, six-, and eight-minute travel time of the station (does not include turnout time). Non-shaded areas are beyond an eight-minute travel time.
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Figure 122: Barnum FD Current Station Deployment
No individual incident data was submitted from which response time performance analysis could be conducted. However, dispatch data from the Sheriff’s Department was made available and utilized for workload analysis.
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Figure 123: Barnum FD Workload History, 2004-2005
Two-Year Workload History
102 100 98 96 94 92 90 88 86 84 2004 2005
Figure 124: Barnum FD Workload by Activity Type 2004 - 2005
Barnum Fire: Workload by Activity Type, 2004-2005
Other 8%
Fire 29%
EMS 63%
Incident records have increased over two years, although the volume of calls is rather low. This low call volume is typical for a rural department. Barnum FD responds to requests for medical assistance at a first responder level, which account for 63 percent of the department’s service demand. The following charts show how activity and demand changes based on time of day, day of week, and month of year.
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Figure 125: Barnum FD Workload by Time of Day
Barnum FD: Workload by Hour of Day, 2004-2005
10.00% 9.00% 8.00% 7.00% 6.00% 5.00% 4.00% 3.00% 2.00% 1.00% 0.00% 0100 0200 0300 0400 0500 0600 0700 0800 0900 1000 1100 1300 1400 1500 1600 1700 1800 1900 2000 2100 2200 2300 Noon Midnite
Incident volume exhibits a typical pattern that reflects higher human activity during the daytime hours; peaking in the middle of the day. When examined by day of week, incident volume is relatively stable during the week and on higher on the weekend.
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Figure 126: Barnum FD Workload by Day of Week
Barnum FD: Workload by Day of Week, 2004-2005
25.00%
20.00%
15.00%
10.00%
5.00%
0.00% SUN MON TUE WED THU FRI SAT
When incident volumes are examined throughout the months of the year, Call volumes climb through the winter, declining into summer, to rise again in the fall months.
Figure 127: Barnum FD Workload by Month of Year
Barnum Fire Dept: Workload by Month of Year, 2004-2005
12.00%
10.00%
8.00%
6.00%
4.00%
2.00%
0.00% JAN FEB MAR APR MAY JUN JUL AUG SEP OCT NOV DEC
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Blackhoof Fire Department (no field visit)
The Blackhoof Fire Department declined to participate in the study. The following information was derived from data available to the project team.
Facility We were able to ascertain that this is a volunteer fire department and operates one fire station. The following evaluation and general condition assessment was conducted on the station.
Blackhoof Fire Department Blackhoof & County Rd
This older, one-story pole building consists of two apparatus bays. The station is an outdated, old facility with a somewhat run-down appearance that has not kept up with.
• Design: No information was made available for this study. • Construction: No information was made available for this study. • Safety: No information was made available for this study. • Environment: No information was made available for this study. • Code Compliance: No information was made available for this study. • Staff Facilities: No information was made available for this study. • Efficiency: No information was made available for this study.
Deployment Strategy / Response Time Capabilities Blackhoof Fire Department maintains one fire station within its response area. The following map displays the total primary response area of the agency as well as the station location. In addition, shaded polygons demonstrate those areas within a four-, six-, and eight-minute travel time of the station (does not include turnout time). Non-shaded areas are beyond an eight-minute travel time.
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Figure 128: Blackhoof Fire Department Current Station Deployment
No individual incident data was submitted from which response time performance analysis could be conducted. However, dispatch data from the Sheriff’s Department was made available and utilized for workload analysis.
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Figure 129: Blackhoof FD Workload History, 2004-2005
Two-Year Workload History
30 25 20 15 10
5 0 2004 2005
Figure 130: Blackhoof FD Workload by Activity Type 2004 - 2005
Blackhoof Fire: Workload by Activity Type, 2004-2005
Other 12%
Fire 29% EMS 59%
Incident records have decreased over two years. Although the volume of calls is rather low, it is not unusual for a rural department. Blackhoof FD responds to requests for medical assistance at a first responder level, which account for 59 percent of the department’s service demand. The following charts show how activity and demand changes based on time of day, day of week, and month of year.
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Figure 131: Blackhoof FD Workload by Time of Day
Blackhoof Fire: Workload by Hour of Day, 2004-2005
14.00%
12.00%
10.00%
8.00%
6.00%
4.00%
2.00%
0.00% 0100 0200 0300 0400 0500 0600 0700 0800 0900 1000 1100 1300 1400 1500 1600 1700 1800 1900 2000 2100 2200 2300 Noon Midnite
Incident volume exhibits a widely varied pattern; but maintains a relatively higher frequency during the morning and afternoon hours. Peak hours are in the morning, midday, and late evening hours. When examined by day of week, incident volume is lighter during the middle of the week, and on higher beginning Fridays through the weekend.
Figure 132: Blackhoof FD Workload by Day of Week
Blackhoof FD: Workload by Day of Week, 2004-2005
25.00%
20.00%
15.00%
10.00%
5.00%
0.00% SUN MON TUE WED THU FRI SAT
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When incident volumes are examined throughout the months of the year, Call volumes are the highest during January and the spring months. Call volume is especially low in the fall and early winter.
Figure 133: Blackhoof FD Workload by Month of Year
Blackhoof FD: Workload by Month of Year, 2004-2005
16.00%
14.00%
12.00%
10.00%
8.00%
6.00%
4.00%
2.00%
0.00% JAN FEB MAR APR MAY JUN JUL AUG SEP OCT NOV DEC
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Section II - System Demand Projections
Community Growth Potential Current Population Information The population of Carlton County was 31,671 in the 2000 U.S. Census 14 . However, the Census Bureau has estimated some increase since the 2000 Census, with the County’s population being estimated in 2004, at 33,639. For the County, this population figure represents a modest 15 percent increase over the 1990 Census, when the population of the Carlton County was 29,259. A portion of growth within the County has occurred through additional housing development, since over 11 percent of the total housing in the County has been built since 1990.
The following chart provides some historical information on population for Carlton County.
Figure 134: Carlton County Population Growth History
Population History; 1970-2004
35000 2.0% 34000 33000 1.5% 32000 31000 1.0% Population 30000 Growth Rate 29000 0.5% 28000 27000 0.0% 26000 25000 -0.5% 1970 1980 1990 2000 2001 2002 2003 2004
The following figures provide some general demographic information on population and housing for Carlton County 14 .
14 2000 U.S. Census Table SF-1 and SF-3.
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Figure 135: Carlton County Population by Age
Demographics- Population By Age
10000 9000 8000 7000 6000 5000 4000 3000 2000 1000 0 Age <5 5 to 24 25 to 44 45 to 54 55 to 64 65 to 74 75 and up
Selected Demographic Information- 1990 to 2000 Total Pop Age <5 5 to 24 25 to 44 45 to 54 55 to 64 65 to 74 75 and up 2000 31,671 1862 8,596 8989 4,530 2910 2392 2392 1990 29,259 2050 8304 8644 3008 2748 2525 1980 change 8% -9% 4% 4% 51% 6% -5% 21%
As can be seen from the figure, 15 percent of the population is 65 years of age or older, and six percent of the population is under five years of age, placing a total of 21 percent of the area’s population within the significant target age groups that pose the highest risk for fatalities in residential fire incidents. It is also worth noting, that the number of residents over the age of 75 has increased by 21 percent since 1990, a change that can be expected to create a significant increase in service demand for emergency medical incidents
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Figure 136: Carlton County Housing by Occupancy
Demographics- Housing By Occupancy
16000 14000 12000 10000 8000 6000 4000 2000 0 Housing Units Owner Occupied Renter Occupied Vacant
Selected Housing Information- 1990 to 2000 Housing Units Owner Occupied Renter Occupied Vacant 2000 13721 9909 2155 1657 1990 12342 8798 2040 1500 change 11% 13% 6% 10%
From the demographic information reviewed here, it is projected that Carlton County should experience a slightly higher demand for emergency services in comparison with other communities of its size.
Census-based Growth Projections As indicated earlier, the population of Carlton County has increased modestly in the past decade. ESCi anticipates additional growth will continue into the future.
In developing forecasts for population growth, ESCi typically develops a forecast based on several decades of census experience. In the case of Carlton County, ESCi used decennial census figures from 1970 through 2000. A mathematical forecast is created through the year 2024. The resulting population forecast appears as follows.
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Figure 137: Census-based Population Forecast
Population Projection By Census Experience
36000 35500 35000 34500 34000 33500 33000 32500 32000 31500 2006 2008 2010 2012 2014 2016 2018 2020 2022 2024 Population 33075 33366 33657 33947 34238 34529 34819 35110 35401 35692
Development-based Growth Projections While census-based population projections provide a mathematically-based estimate of future population based on historical data, they often fail to account for expected trends in the growth rate of an area. These changes often result from redevelopment, annexation, changes in employment capacity, or other socio-economic factors not reviewed in a census-based projection. For this reason, ESCi offers population projections based on review of available local development and business information.
In this case, ESCi reviewed information available from the Carlton County Comprehensive Plan and the State of Minnesota. The resulting population forecast appears as follows.
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Figure 138: Development-based Population Forecast
Population Projection By Development Forecast
39000 38000 37000 36000 35000 34000 33000 32000 31000 2006 2008 2010 2012 2014 2016 2018 2020 2022 2024 Population 33733 34241 34750 35308 35866 36424 36982 37540 37948 38356
The development-based population forecast is significantly higher than the census-based population forecast, primarily due to local and regional issues that are expected to expand development opportunities, including annexation, additional transportation improvements, and adequate water and sewer infrastructure capacity.
It is not the intent of this study to be a definitive authority of future population projection in the service area, but rather to base recommendations for future fire protection needs on a reasonable association with projected service demand. Since, it is known that service demand for emergency agencies is based almost entirely on human activity, it is important to have a population-based projection of the future size of the community. While we can see variation in the population projections discussed here, one thing that can be certain is that the fire departments within the County will continue to be emergency service providers to a growing population, likely reaching over 38,500 by 2025. Planning should begin now to maintain the resources needed to meet the continuing demand for services.
Service Demand Projections In evaluating the deployment of facilities, resources, and staffing, it is imperative that consideration be given to potential changes in workload that could directly affect such deployment. Any changes in service demand can require changes and adjustments in the deployment of staff and resources in order to maintain acceptable levels of performance.
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For purposes of this study, ESCi utilized population projections obtained through community development research, and multiplied these by a forecasted incident rate derived from a five-year history of incident per capita rates, to identify workload potential through the year 2024. The results of the analysis are shown, by year and type of call, in the following chart and table.
Figure 139: Workload Projection by Type and Year
Fire Workload Forecast 2500 EMS Other 2000
1500
1000
500
0 2006 2008 2010 2012 2014 2016 2018 2020 2022 2024
Fire 303 308 313 318 323 328 333 336 340 344 EMS 2014 2044 2077 2110 2143 2175 2208 2232 2256 2280 Other 238 242 246 249 253 257 261 264 267 270
The increase in actual fire incidents is forecast to be relatively low during the study period, but this is a reflection of national trends for fire incident rates per capita, and is believed to be a result improvements made in building codes and public fire education over the past three decades. EMS and other emergency service calls not involving actual fires is expected to continue to rise moderately.
Community Risk Analysis The fire service assesses the relative risk of properties based on a number of factors. Properties with high fire and life risk often require greater numbers of personnel and apparatus to effectively mitigate a fire emergency. Staffing and deployment decisions should be made with consideration of the level of risk within geographic sub-areas of a community.
The community’s risk assessment has been developed based on potential land use within its anticipated future boundaries. These potential uses are found in the County’s development plans
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and zoning designations. The following map translates land use (potential scale and type of development within geographic sub-areas) to categories of relative fire and life risk. • Low risk – Areas zoned and used for agricultural purposes, open space, low-density residential, and other low intensity uses. • Moderate risk – Areas zoned for medium-density single family properties, small commercial and office uses, low-intensity retail sales, and equivalently sized business activities. • High risk – Higher-intensity business districts, mixed use areas, high-density residential, industrial, warehousing, and large mercantile centers.
Figure 140: Community Risk Assessment
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The County contains mostly low and moderate risk properties. The predominance of highest risk is located in Cloquet, along the rail corridor on the north side of the city, and in certain non-residential developments along the interstate highway. These properties include industrial, heavy commercial, mid-rise, mixed-use, institutional, and multi-family occupancies.
The County’s land use patterns generally contribute to development of an efficient fire resource deployment configuration, as most of the higher risk properties are along the interstate corridor, with an even more concentrated amount of properties in the northeast part of the county.
Service Planning Delivery Zones Carlton County is, in essence, three distinct types of communities consisting of densely populated areas, growing suburban areas, and a rural core. These differing area types present different, relative risks of fire incident impact, as well as different levels of service demand, which, therefore, suggest alternative fire protection and emergency service. For purposes of this study, these areas have been delineated as service delivery planning zones, and are suitable for use in considering tiered levels of response performance and system capacity.
It is widely recognized that the cost of fire protection and emergency services increases as the levels of facility and resources are increased. Resources are typically increased to achieve reduced response time, faster assembly of an effective firefighting force, increased system capacity, and the ability to protect higher levels of risk. However, in communities where there exists a wide variation in the levels of service demand and risk, it is also recognized that a single level or service delivery performance may not be appropriate.
In other words, a jurisdiction that provides protection for an area that is primarily densely urban residential, commercial, and industrial development, may find a single service delivery performance plan to be perfectly appropriate, but a community serving a mix of dense urban areas, as well as rural farmland, will find this much more difficult. Were such a community to attempt to achieve the same levels of response performance and resources for its rural area as it does its urban area, costs would increase greatly due to the smaller number of taxpayers and lower assessed values of the rural regions of the jurisdiction. This why many of these communities choose to deliver both an urban and a rural level of service, levels that more closely match the risk and demand, as well as the expectations of the citizens living there.
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Since the County has not previously made use of service delivery zones, these areas were developed in conjunction with the County’s future land use plans, considering planned levels of population density, types of property uses, and anticipated levels of relative risk. These performance standards should be reviewed and accepted by the elected and appointed officials of Carlton County, since they form the foundation for the future deployment of emergency services in the jurisdiction and, thus, the resulting levels of service to be anticipated by the taxpaying citizen.
Illustrated in the following figures, Carlton County is divided into three separate service delivery planning zones. These service planning delivery zones comply with guidelines set by NFPA 1720 15 .
Figure 141: Carlton County Service Planning Delivery Zones Carlton County Fire & EMS Service Delivery Planning Zones Type Percentage of Calls Response Time Urban 90% 9 minutes Suburban 80% 10 minutes Rural 80% 14 minutes
15 NFPA 1720: Organization and Deployment of Fire Suppression Operations, Emergency Medical Operations, and Special Operations to the Public by Volunteer Fire Departments , 2004.
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Figure 142: Carlton County Service Delivery Zones Map
These response time objectives apply to the first due engine and EMS response units. Ladder/service unit are permitted to have longer response time objectives. This is because they are fewer in number and may need to cover more than one area. Ladder/service unit response time objective for developing deployment strategies is based upon answering 90 percent of calls within twelve minutes of dispatch.
Since each area is distinctive in many aspects now, and in the future, each area has been analyzed both separately, and together, to develop strategies based on these differences. In the sections to follow, each zone is discussed in relation to its composition, future potential, and performance capabilities.
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Urban Service Delivery Planning Zones These are areas with high population densities and higher community risk properties corresponding with current higher service demand levels. Projected to remain an area of high service demand, these areas should adhere to response time objectives consistent with NFPA 1720 for the fire stations that primarily serve this area. Response time performance relies on road network and speed limit levels. While the amount of roadways in the urban zones accounts for a large percentage of total roadway miles within the County, there are some hindrances to fire response capability typical of urban environments. A greater number of turns necessary to arrive at a destination reduces the ability of a multi-ton fire apparatus to maintain speed. This, along with daytime traffic, signaled intersections, and narrow residential streets impede response performance potential.
Suburban Service Delivery Planning Zones These zones extend from the urban zones usually along major road arteries and are areas of the most recent and future growth potential. Like the urban zones, there are two separate suburban zones. The response time objective, within the suburban zone for the first due engine company or ambulance, is to reach 80 percent of the calls within ten minutes of dispatch. This is a reasonable figure because due to the moderate call volume and a reduced level of community risk, response time objectives can be extended.
Although the hindrances to response capability that are present in the urban zones are not as great within suburban zones, they are still potential impediments to response capability. One main issue that also encumbers emergency vehicle response is the use of cul-de-sacs, limited access communities, and traffic calming devices such as speed bumps. Although these may be present as well in Carlton County’s urban response zones, they become more pervasive in suburban communities, and the norm in recent residential developments.
Rural Service Delivery Planning Zone Speed capabilities in rural zones tend to be greater due to the lack of turns and sparse development. Although service demand will increase in this zone as well, it is projected to increase modestly in the same areas as current demand due to the lack of planned development in this zone. Being an area of lower community risk, response times can typically be relaxed in developing a fire protection strategy. A response time of fourteen minutes from dispatch is not
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unusual for very rural areas with limited population and will allow fewer stations to cover a wider area.
The following figures depict how well the current facility and apparatus deployment coordinate with the service delivery planning zones.
Figure 143: Service Delivery Planning Zones and Current Engine Co. Deployment
Although the urban service planning delivery zone is within the target response time capability of a fist due engine for a planning zone, parts of the suburban fringe west of Cloquet are not. There are County areas that are not within 14 minutes of an engine company, within the rural service planning delivery zone as well.
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Figure 144: Service Delivery Planning Zones and Current Ambulance Deployment
Significant areas outside of the urban and suburban zones are not within 14 minutes of an ambulance unit. Gaps in coverage will be addressed in Section III.
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Section III - Future Delivery System Models
A fire and EMS master plan is intended to provide strategies that are long-term in nature. It is the job of a master plan to identify the most critical issues the agency will face over the long haul, out as much as twenty years in the future. ESCi initiated that process in the previous section where we reviewed community growth, identified risks, and evaluated service demands. In developing a long term strategy for fire and EMS services for Carlton County, the integrative use of knowledge acquisition, depth of expertise, and geographic modeling tools were employed.
Earlier sections of this report analyzed current resource and staffing deployments along with the performance levels in geographic coverage and service demand. This section will explain the critical issue our analysis identifies and provide solid strategy options that the Carlton County and its service providers can consider for the future.
Critical Issues Through interviews with system stakeholders, direct observation, system capability modeling, and statistical analysis, ESCi has identified the following issues as being the most critical to the future ability of Carlton County and its individual municipalities to provide effective emergency services to its citizens.
Advanced Life Support Deployment As has been pointed out, Carlton County has a three-tiered EMS system in place. • First Responders • Basic Life Support (BLS) Ambulances • Advance Life Support (ALS) Ambulances
Small units from various fire departments initially respond to medical emergencies as First Responders; trained to provide initial aid and basic life support care. These units are staffed by volunteers, usually equipped with basic first aid equipment and an automatic external defibrillator. These units often are the first to arrive at the scene and can provide care in advance of the transport ambulance unit.
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In addition to the fire departments’ first responders, police agencies also respond to some medical calls when they are available and provide initial care. This includes units from the Carlton County Sheriff’s Department, who are often on patrol in the rural areas of the County and can respond more quickly.
Transportation of patients is handled by one of the four ambulance services in Carlton County. The medical care provided during transportation will either be done at a basic life support level as in the case of Carlton and Cromwell Fire Departments, or at advanced life support level as in the case of Cloquet Fire Department or Mercy Hospital (when their unit is staffed by a paramedic).
However, unlike most three-tiered systems, the level of medical care available during transportation in Carlton County is more a result of geography than of the patient’s medical status.
Currently, there is only one full-time advanced life support provider in the County, the Cloquet Fire Department. Their ambulance is staffed by on-duty firefighter-paramedics on a consistent 24-hour basis. The other advanced life support provider is Mercy Hospital, but their agency has only two paramedics, and cannot operate at an ALS level unless one of the two is on-duty. Given Cloquet’s location in the northeast corner of the County, ALS unit response time to distant areas, particularly western portions of the County, can be quite long if a paramedic is not on duty at Mercy Hospital.
An additional factor is that an ALS unit is not always dispatched to incidents in which advanced life support medical care is likely to be needed. No formal process is in place within the Communications Center to screen calls for the purpose of determining appropriate resources. As a result, medical calls are simply dispatched to the closest ambulance service, whether that service is BLS or ALS. If the responding service is BLS only, it is up to that service to initiate a request for an ALS unit to respond also, based on their perception of the need for advanced life support medical services.
The situation described in the preceding paragraph creates the opportunity for wide discrepancies as to when advanced life support medical care is utilized. In some cases, BLS medical technicians may determine that even though ALS care is warranted, the BLS unit could proceed to the hospital faster than the time it would take for an ALS unit to arrive from Cloquet to assist them. This is particularly true when no ALS unit was initially dispatched on the call. Without formal medical
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protocols stating otherwise, the decision to initiate a call for ALS response is in the hands of the responding medical technician on the BLS unit.
The result of this EMS system’s current state is that, even when appropriate to the medical need, paramedic-level ALS services are not consistently provided for response to all citizens and are not consistently distributed geographically to both the eastern and western portions of the County on a 24-hour basis.
EMS System Funding Funding for the provision of emergency medical services is no less fractured and inconsistent.
Local first responder agencies are typically funded through local property taxes at the city, town, or township level. In some cases, this funding is provided as an integral part of the general fire department funding by the municipality. Some additional funding may come through donations, fund-raising, or grant programs provided by Carlton County or the State of Minnesota.
The four ambulance services are funded by a combination of local property taxes and service fees. Cromwell’s system is supported by a local ambulance district tax, as well as other municipal support, along with the revenue generated by its ambulance service fees. In similar fashion, Mercy Hospital derives funds primarily from a hospital district tax and ambulance service fees. Both Carlton and Cloquet ambulance services are funded as a part of their fire department budget, derived primarily through city property taxes and revenue from ambulance fees.
The lack of significant centralized financing of the EMS system within Carlton County naturally leads to a lack of cohesive, centralized planning, and system development. Since no single entity has responsibility for EMS provision, decisions are not always coordinated between agencies to achieve maximum effectiveness. The lack of formal protocols for consistently dispatching an ALS unit to those calls where ALS care is warranted is one example.
In general, Carlton County is relying much too heavily on EMS service fee revenues to offset the costs of providing ambulance service. It is a fact that very few emergency medical systems in this country operate solely from service fee revenue. Even those systems where private companies provide service, often involve tax subsidies to cover deficits between service fee revenue and system cost.
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The more rural the system, the more likely this is to be true. In rural systems, the cost of maintaining 24-hour service is relatively high in comparison to population density, while the larger geographic areas require additional resources to maintain reasonable response times. However, the lower demand for service in rural areas does not generate sufficient revenue to come close to paying for the system. It is the quandary of emergency services, wherein the cost to make quality service consistently available, is rarely offset by the revenue created from relatively low use of this service.
In addition to its effect on system planning and design, the fractured funding methodology results in budget pressures that have an effect on system efficiency, or create burdens on other services.
For instance, since no cohesive plan for EMS financing exists, full-time paramedic staffing at Mercy Hospital has not been pursued due to budgetary constraints. The provision of ALS services to the western portion of the County is not a 24-hour venture, because funding is not available to make it so. Limited revenue from service fees, even with the subsidy from the hospital district tax, does not provide sufficient funding to take the program to full-time 24-hour status.
On the other hand, in the eastern portion of the County, the ALS service is provided by a fire-based system in the Cloquet Fire Department. Since the fire department is already a 24-hour agency, the firefighter-paramedics are scheduled to be on duty for fire protection on a round-the-clock-basis. While this is a good thing in respect to the availability of ALS response in the eastern side of the County, it is not necessarily without an effect on the fire protection for the City of Cloquet.
Cloquet Fire Department maintains between six and seven firefighters on duty, but can drop to as few as four with leave time. When the ambulance responds to a call, whether that call is inside the City’s response area or to assist another service provider elsewhere, the availability of personnel for fire suppression response within the city is lowered. Service fees related to ambulance response do not fully offset the cost of this impact, so the city is either unable to add more full-time staff or must absorb a large overtime cost for calling in off-duty firefighters during extended ambulance response.
Those communities that do not provide ambulance service, or are not in a tax district that does, do not currently participate directly in funding the availability of the service they receive from their
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assigned provider. In those areas, the system essentially relies on the service fees generated from patient transports to offset the cost of providing that service. It has already been demonstrated that service fee revenue is typically far less than the cost of making that service available. As a result, those areas that are not participating as service providers, or are not in a service provider’s tax district, are directly benefiting from the budget subsidies provided by the property taxes of those that are.
Emergency Services Redundancy and Overlap in Growth Areas ESCi’s analysis of growth and development within Carlton County indicated that the areas of most rapid development are in and around the City of Cloquet, Thomson Township, and to some degree the area surrounding Exit 235 of Interstate 35, where Black Bear Casino and Hotel are located.
These growth areas also correspond with the areas of most significant overlap between the response capability of four fire departments in Cloquet, Carlton, Scanlon, and Esko. These four agencies are more densely spaced than any other agencies in the County. While this can be a benefit in terms of the concentration of available resources, the fact that the four agencies are independent of one another can lead to an overall lack of coordination, limited resource sharing, and ineffective regional planning.
At its worst, where growth and development is an issue, this fractionalization can sometimes lead to competitive attitudes between agencies. At the least, independent agencies serving essentially a single regional growth area often fail to work closely enough to maintain the most effective services, at the most efficient cost. Redundant apparatus purchases, lack of coordinated automatic aid, and other issues often mean the concentration of resources in the growth area are not fully utilized for greatest benefit.
Fire and EMS Staffing As has already been pointed out, there are signs of inadequate staffing within the emergency services of Carlton County.
Most obvious is the lack of 24-hour paramedic staffing for the Mercy Hospital Ambulance Service. This is occurring because the agency can only provide ALS services when a paramedic is on-duty. When a paramedic is not on-duty, the agency can provide services at a BLS or Intermediate level
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only. The agency employs two paramedics at this time, making it impossible to cover 24-hour staffing.
Even though 24-hour paramedic staffing is available in the Cloquet Fire Department, that agency is also not exempt from staffing issues. As pointed out, ambulance responses pull away from the on- duty fire suppression capability of the department. This is occurring more and more often as ALS responses across the County increase. These calls pull the ALS unit out of Cloquet for increasingly long periods of time, often during periods when only four or five firefighters were available to begin with. To compensate, the agency calls off-duty personnel back to duty, resulting in high overtime costs. Adequate on-duty staffing could reduce this need to rely on overtime.
The other two ambulance services, Cromwell and Carlton, rely primarily on volunteer or on-call responders. Carlton has one full-time employee, but must still rely on a second on-call responder to staff the ambulance, even when the employee is on-duty. While Cromwell reported relatively few problems with ambulance staffing, Carlton reports that ambulance response is sometimes delayed for unreasonable periods while the unit waits for an on-call responder to arrive. According to interviews, the problem has worsened as call volume has increased. This is not at all unusual for a volunteer agency that is experiencing growth in service demand.
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Future Organizational Strategy Options
Following identification of the critical issues facing emergency services in Carlton County, ESCi developed the following strategies that could be implemented to provide for improvement in effectiveness, consistency, or coordination.
Option One: Provide EMS Funding Stability through a Countywide Tax The current EMS system across Carlton County is funded in a number of ways ranging from municipal operating funds, fees, grants, fund raisers, donations, subsidies, and/or contracts. Fees, alone, rarely cover the cost of providing EMS services, especially ALS.
This option would propose that the government of Carlton County step into the role of primary responsibility for an organized emergency medical services delivery system. Once this role is established, a countywide tax assessment would be legislated and imposed for funding emergency medical services. Various taxing options may exist for this purpose including a simple increase in the County’s General Fund rate to cover costs of emergency medical service delivery, or a special countywide EMS taxing district. This determination would be made in consideration of options and restrictions available to or imposed upon Carlton County, and the funding role of existing municipalities.
Existing and/or proposed entities providing EMS advanced life support resources to Carlton County would submit budget requests to Carlton County Board of Commissioners for review and approval. This approval would be the basis of the tax assessment and disbursement countywide. This funding approach could also provide a revenue source to support an EMS/ALS competitive bid system.
An alternative concept might be the implementation of a county tax assessment that was legislated based on multiple, pre-determined EMS service delivery areas. As an example, the four ambulance response areas would each define a service demand-based taxing district. The EMS entities within these taxing districts would formulate and submit a budget to fund approved EMS/ALS resources within their respective districts to the Carlton County Board of Commissioners. The tax assessment for the districts would be based on the service delivery resources approved for
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that respective district. This strategy could also be utilized to fund countywide provision of ALS services in one of the approached outlined in subsequent sections of this report.
A third alternative would be the development of a three-tiered county EMS tax based on urban, suburban, and rural service delivery districts. These tax districts would be based on population density, service delivery demands, and the County’s Comprehensive Plan, as demonstrated in Section II of this study. A county tax assessment plan would be legislated based on the three EMS service demand areas and the resources required to service them.
The Carlton County Board of Commissioners would adopt an approval and disbursement process based on the delivery system implemented by the agency or agencies providing services in the respective urban, suburban, and rural districts.
The primary purpose of this option, including any of its alternative forms, is to provide centralized responsibility and authority for the design and implementation of an effective emergency medical services system, appropriate to the risks and demand, to all areas of Carlton County, and to permit that system to have consistent, fair, and reasonable funding support without depending solely on user fees.
Option Two: Countywide ALS Provision through Current ALS Providers The initial consideration of providing countywide ALS services through current providers identifies Carlton Fire and Ambulance Department, Cloquet Fire Department, Cromwell Fire and Ambulance Service, and Mercy Hospital Ambulance as potential providers due to their countywide patient transport services. One of these units responds to every EMS incident in Carlton County requiring patient transport.
As discussed earlier, Cloquet Fire Department provides ALS transport services on a 24-hour basis, Mercy Hospital about half-time or less, and both Cromwell and Carlton provide BLS transport services. Cromwell and Carlton have an ALS intercept arrangement in place with Cloquet and Mercy based on patient need and the medical technician’s discretion. One of the critical issues identified in the current system is the lack of consistent availability of strategically located ALS services. For this reason, Option Two considers various alternatives for making ALS services more consistent around the clock and within reasonable travel distance from an emergency by upgrading the current service providers.
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Considering the current population density, demand for services and the ALS call load countywide, Carlton County could greatly enhance its ALS transport and service delivery system by fully supporting two strategically located ALS transport units. These two units would best serve the county when located in the City of Cloquet and the City of Moose Lake as indicated by the figure below, since this would place them in the center of urban and suburban service zones within the County and closest to the areas of high service demand.
Figure 145: Proposed ALS Zones
Two ALS response zones would be created. The Carlton County Sheriff’s Dispatch Center would automatically dispatch the closest ALS transport unit, with the appropriate BLS/first responder resource, based on call assessment by the dispatcher. The operational BLS and first responder system would continue to operate as it is currently organized, but in concert with the county- supported ALS provider.
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In order to accomplish this, a system will need to be put in place to ensure that the two existing ALS providers are able to provide paramedic level response on a 24-hour basis. Methods for centralizing the responsibility for designing and funding the County’s EMS system have already been discussed, and this option likely depends on implementation of such an effort.
The most desirable arrangement would be for each agency to continue and/or upgrade their present efforts to provide ALS services. Cloquet Fire Department would continue to provide 24- hour paramedic staffing that would serve both the City of Cloquet, as well as the designated response area shown in the map above. Since Cloquet would be dedicating staff to ALS response across a wide swath of the County, the city should be able to anticipate some assistance in funding those efforts. This is where the supplemental funding from the proposed County EMS tax would be used. Cloquet would be encouraged to staff its ALS unit separately from its fire suppression units so that the deployment of the ALS unit into other areas of the County did not detract from its ability to provide initial fire response, and vice versa. As a result, upgrading the ALS care and transport system countywide would also provide a staffing and call load relief supplement to the Cloquet Fire Department.
Mercy Hospital would upgrade its part-time ALS service by hiring sufficient ALS staff to ensure 24- hour coverage. Again, since this coverage would be provided to nearly half the County, Mercy Hospital should also anticipate County funding to support this effort.
In each agency’s case, the department would negotiate a contract with the County in which an annual budget, reasonable to support the delivery of ALS response to their particular ALS response zone, would be presented and approved, and tax-supported funding would be provided to offset the difference between these budgets and the user fees projected to result from service delivery.
In order to maintain consistency, medical direction for the ALS system would be appointed by Carlton County and could include participation from both area hospitals on a task force or committee basis.
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Staffing costs for this option are based on the following assumptions: • The two ALS transport units would be staffed through the agencies using supplemental funding from Carlton County. • The two ALS transport units would each be staffed with two full-time career paramedics on a twenty-four basis. • The salary and wage formula used for hiring paramedics is the average salary and wage paid by the Cloquet Fire Department, or $45,116 per year plus employee expenses and fringe benefits. • The fringe benefits for hiring paramedics are approximately 30 percent or $13,534.80.
Providing two career paramedics for each of the two units on a 24/7/365 basis would require hiring 8.4, or nine, certified individuals per unit for a total of 17 personnel. This formula provides for a minimum staffing of two people per unit considering predictable absences, vacations, leave, and training, etc. Hiring 17 paramedics would have the salary, wage, and benefit cost of $997,063.60 per year, plus employee expenses. Another option would be hiring a minimum complement of personnel and supplementing the minimum staffing requirement with overtime compensation for predictable absences.
From a cost effectiveness viewpoint, utilization of existing fire/rescue facilities would be desirable. Carlton County could negotiate an appropriate budget for maintenance and upkeep of the portion of these facilities dedicated to the countywide ALS effort.
The fleet and equipment needed for this option would require that the system maintain a minimum of two ALS transport vehicles and associated equipment. Experience indicates a minimum cost for this type of vehicle and ALS equipment is approximately $165,000 each. Two units would be approximately $330,000. This would not provide for reserve resources.
Option Three: Countywide ALS Provision through All Four Current EMS Transport Providers This particular option would involve staffing all four transport organizations with ALS certified (paramedic) personnel on a 24/7/365 basis. This could be accomplished through a complement of volunteer and/or career staff depending upon the respective organization.
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The ALS certified (paramedic) personnel would work and/or participate under the auspices and funding of their respective organization. Appropriate agreements and/or mutual aid arrangements would be addressed countywide.
Based on a Carlton County Sheriff’s Department Communications Center screening protocol, the closest ALS transport unit would be dispatched to EMS incidents countywide.
In those cases where the transport organization had both a BLS and an ALS unit available, the appropriate transport unit could be determined by the communications center through the call screening protocol. This would require the communications center to dispatch by unit and maintain unit status countywide.
Medical direction for the program would be overseen by a forum comprised of the individual medical directors currently providing medical direction to the EMS providers in Carlton County.
Staffing costs are based on the following assumptions: • Cloquet FD would not increase their staffing complement for ALS response. • Each of the four transport units would be staffed with one full-time career paramedic on a twenty-four basis. • Volunteer paramedics could be utilized to staff units depending on individual organizations. • The salary and wage formula used for hiring paramedics is the average salary and wage paid by the Cloquet Fire Department or $45,116 per year plus employee expenses and fringe benefits. • The fringe benefits for hiring paramedics are approximately 30 percent or $13,534.80. • Medical direction would continue under the current funding. • Providing a career paramedic on a 24/7/365 basis would require hiring 4.2, or five, certified individuals per organization. Hiring five paramedics would have salary, wage, and benefit cost of $293,254 per year, plus employee expenses, per organization.
Facility modification costs for the Cromwell Fire and Ambulance Department to accommodate 24 hour personnel are estimated to be $25,000.
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A fleet and equipment modification to accommodate ALS capabilities for two ambulances is estimated to be $100,000.
Option Four: Countywide ALS Provision through Competitive Bid Provision of countywide ALS services through competitive bid or contract would involve a third service approach to advanced life support. This approach has been implemented by a number of jurisdictions nationwide.
The first determination would be one of identifying the contractual authority. This could involve any combination of the Carlton County Fire Chief’s Association, Mercy Hospital, the County Government (Emergency Management), the municipalities, the medical directors, and/or other appropriate organizations. If the County proceeds with the implementation of county- government responsibility and centralized funding for the EMS system, the County would seem to be the appropriate contractual authority.
This entity, or entities, would determine the scope and specifications for a request for proposal (RFP) with specific performance requirements ranging from response times to resources provided (e.g. ALS transport and/or ALS chase car , etc.), and from where. Funding would be addressed through fees charged by the contractor, County subsidy, and/or a County taxation formula. A funding formula could also be determined among those entities receiving services.
The successful bidder would be melded into the current Carlton County EMS delivery system. This would include the Sheriff’s Communication Center and support of the current hospital and fire department EMS providers.
Logically, implementation would be an easier task if the successful bidder came from an existing Carlton County entity such as the City of Cloquet (fire department), Mercy Hospital, the County Sheriff, County Emergency Management, or other local organization. This is not to say that a national/regional contractor would not be successful as is evident by many such positive experiences across the United States.
The Cloquet Fire Department and/or Mercy Hospital could continue to provide their autonomous services under this option with the assumption they would formally cooperate with a countywide
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third service system. If they were not the successful bidder, they could also elect to use the contracted services in place or their current system.
The staffing, facilities, fleet, and equipment costs for providing ALS services under a competitive bid or third service arrangement would be influenced by many variables that would be determined by contractual authority as discussed above.
Option Five: Countywide ALS Provision through a County Agency The provision of countywide ALS services through a County agency would require the development and implementation of a either a completely new County EMS agency, or a new division of an existing County agency.
Three logical alternatives surface when considering this strategy; establishing an autonomous Carlton County EMS agency, establishing an EMS Division of the County Emergency Management Department, or establishing an EMS Division of the Carlton County Sheriff’s Office. This organizational determination would rest with the Board of County Commissioners with significant involvement from current EMS service providers, the State of Minnesota, and other pertinent agencies and/or stakeholders.
Many jurisdictions, at the county level, have implemented an ALS chase-car system. This type of system would take full advantage of the existing Carlton County EMS delivery system, while providing consistent, countywide ALS services.
Depending upon whether Cloquet Fire Department and/or Mercy Hospital elected to continue providing ALS services, an ALS chase car could be assigned to a sufficient number of stations strategically distributed around the County to be dispatched by the Sheriff’s Communications center as determined by protocol. The ALS chase car paramedic would respond with the closest first responder and/or transport ambulance. The current first responder and transport process would see little change, except that the County paramedic would attend the ALS patient in the transport ambulance. It is anticipated that a minimum of two ALS chase cars would be necessary, increasing to three as ALS service demand picked up.
Implementation of a County agency initially providing an ALS chase car system could be the precursor of a countywide ALS transport system, as population density and workload increased.
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This resource would be a natural safety net for the current volunteer-based system and offer additional service provider resource depth to the EMS services provided by Mercy Hospital and Cloquet Fire Department. The use of the ALS chase car concept in place of Cloquet’s countywide ALS response could significantly lower the pressure this service places on its ability to maintain fire suppression resources.
Staffing costs are based on the following assumptions: • Cloquet Fire Department would not increase their staffing complement for ALS response, even if it elected to continue that service in-house to local residents. • Each of the three ALS chase car units would be staffed with one full-time career paramedic on a twenty-four basis. • The salary and wage formula used for hiring paramedics is the average salary and wage paid by the Cloquet Fire Department or $45,116 per year plus employee expenses and fringe benefits. • The fringe benefits for hiring paramedics are approximately 30 percent or $13,534.80.
Providing a career paramedic on a 24/7/365 basis would require hiring 4.2, or five, certified individuals per chase car unit. Hiring five paramedics would have salary, wage, and benefit cost of $293,254 per year, plus employee expenses, per unit. This would be an annual cost of $879,762 plus employee expenses for paramedic salary and wage for the three chase car units.
Utilization of existing fire/rescue facilities would be desirable from a cost effectiveness viewpoint. Carlton County could negotiate an appropriate contractual rate for use of these facilities. Consideration of the services provided would be factored into the contractual rate.
The fleet and equipment requirement for this strategy would require a minimum of two ALS chase car vehicles and associated equipment. Experience indicates a minimum cost for this type of vehicle and ALS equipment is approximately $75,000 each. Three units would be approximately $225,000. This would not provide for reserve resources.
Option Six: Expansion of Automatic Aid in Northeast Carlton County The northeast area of Carlton County represents a significant overlap of response capability by the four fire departments serving Cloquet, Carlton, Scanlon, and Esko.
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These four agencies are more densely spaced than any other agencies in the County. With the exception of the common dispatch center, the departments are organized, and operate, almost completely autonomous of one another. This phenomenon leads to a lack of coordinated automatic aid, disjointed incident command where a firefighter in one area commands a senior officer from another area, delayed responses, and other issues detrimental to efficient, effective service delivery. In many instances, the closest emergency resource to a particular incident is not dispatched based on individual department’s protocols and the Sheriff’s office dispatch procedures.
The expansion of a formal fire and EMS automatic aid arrangement between the four agencies could facilitate dispatching of the units closest to the incident, reduce response times, encourage a standardized operational relationship between the organizations, enhance safety, and initiate an integrated chain of command.
Rather than each department attempting to provide all the services required to resolve a particular emergency in their respective response areas, these resources (e.g. engines, ladder trucks, extrication vehicles, specialty teams, boats, ambulances, command officers, etc.) could respond from multiple stations with appropriate staffing and response times.
As an example, considering two engines, a ladder truck, and an ambulance assigned to initially respond to a dwelling fire in this region, each service could respond from a different station with an on-duty command officer supplied on a rotating basis from one or more of the departments. This phenomenon if referred to as a single pull system in many parts of the country.
The single pull arrangement is especially efficient when considering the volunteer staffing challenges associated with the time of day, day of the week, and the limited staffing available in the City of Cloquet.
The Sheriff’s communication center would be required to maintain the status of all emergency resources by unit, and dispatch by unit using modern computer aided dispatch (CAD) software.
The basic cost of implementing Option Six would involve only the administrative costs associated with designing and implementing an expanded mutual aid system between the four entities. An actual savings could be realized in future years based on defined resources being utilized from
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each of the departments, instead of each department trying to provide all services to each emergency.
Option Seven: Consolidation of Services in Northeast Carlton County As noted, the Cloquet, Carlton, Scanlon, and Esko fire departments are more densely spaced than any other agencies in the County. While this can be a benefit in terms of the concentration of available resources, the fact that the four agencies are independent of one another can lead to an overall lack of coordination, limited resource sharing, and ineffective regional planning.
Where growth and development are an issue, this fractionalization can sometimes lead to competitive attitudes between agencies. Independent agencies serving essentially a single regional growth area often fail to work closely enough to maintain most effective services at the most efficient cost. Redundant apparatus purchases and station locations, lack of coordinated automatic aid, and other issues often mean the concentration of resources in the growth area are not fully utilized for greatest benefit.
Based on these observations, the four agencies could consider a form of consolidation or merger. While there are a number of consolidation/merger methodologies, the agencies involved could assess three general approaches or strategies, and apply local requirements and issues as required. A unified northeastern fire district might appear as shown in the following figure.
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Figure 146: Northeast Carlton County Unified District Strategy
Possible unification strategies: Functional Consolidation – the four organizations would determine the functional areas common to their respective departments that could be consolidated for regional improvement. Examples to consider would be planning, maintenance, training, fire prevention, capital and operating acquisitions, operational command, standard operating procedures, and automatic aid, etc.
The entities would retain their organizational autonomy and funding, while entering into a functional consolidation agreement for those disciplines beneficial to the departments and service delivery.
Operational Consolidation - this strategy joins the entities, in their entirety, through the execution of a contractual agreement. The resulting organization features a single organizational structure and
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chain of command. Depending on the form of the agreement(s) establishing the organization, members/employees would most likely remain with the original organization/employer.
The unique feature of an operational consolidation is that existing governance is preserved. The management team of an organization, operating under an operational consolidation, reports to each political or agency governing body. This usually occurs through a joint oversight board established expressly for this purpose. The entities prepare and adopt separate budgets, and retain responsibility for overall policy and funding. The unified organization is funded as prescribed by the contractual agreement, usually through melding of individual budgets or by the apportionment of cost in accordance with a predetermined formula.
Full Merger - Under certain circumstances in law, emergency services can join into a single entity. This formal approach unites not only programs, but also the organizations themselves. State laws addressing political subdivisions usually detail a process for legal unification.
Typically, state law draws a distinction between words like annexation, merger, and consolidation when speaking of a legal unification. Organizationally, however, the outcome of any such legal process results in one unified emergency services district. The major differences between legal strategies relate to governance and funding/taxation issues. In many states, some process of inclusion exists that essentially involves the annexation of one entity to another, preserving the governing body and the funding/taxing authority of the surviving district. A legal merger, on the other hand, usually entails the complete dissolution of the agencies involved with the concurrent formation of a single new entity and governance in the place of the former. A key feature of both forms of legal unification (merger and inclusion) is a single funding/tax process applied to the whole of the resulting emergency services district.
The cost formulas for Option Seven are discussed in each of the three options above. While cost savings may be realized in future years, initial implementation costs may be greater than current expenditures.
Option Eight: Additional Staffing for Fire and EMS The Commission on Fire Accreditation International (CFAI) of the International Association of Fire Chiefs (IAFC) provides a sample critical tasking analysis for the number of personnel required on
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the scene of emergency incidents based on the level of risk (See the figure below). Single family dwelling fires, for example, are generally considered a moderate level of risk.
Figure 147: Minimum Operational Staffing Based on Level of Risk
Minimum Operational Personnel Needed Based On Level of Risk Critical Task 16 Max. Risk High Risk Mod. Risk Low Risk
Attack line 4 4 2 2 Search and rescue 4 2 2 Ventilation 4 2 2 Backup line/rapid intervention 4 3 2 2 Pump operator 1 1 1 1 Water supply 1 1 1 Utilities support 1 1 1 Command/safety 2 2 2 1# Forcible entry * Salvage * Overhaul 1* Communication 1 Chief’s aide 1 1 Operations section chief 1 Logistics 1 Planning 1* Staging 1* Rehabilitation 1 Division/group supervisors 2* High-rise evacuation 10* Stairwell support 10* Total 49 17 13 6 # Can often be handled by the first due officer. * At maximum and high-risk fires, additional personnel may be needed.
CFAI’s critical task staffing needs, by risk sample, identifies six personnel for low risk , 13 personnel for moderate risk , 17 personnel for high risk , and 49 personnel for maximum risk .
The data provided for this report, with little exception, did not permit a full analysis of the number of personnel initially responding to emergency incidents across Carlton County. With the exception of the Cloquet Fire Department, fire department standards of response coverage were not available as well. However, details regarding service methodology did allow some assumptions regarding staffing performance.
16 All tasks may be functional during the early moments of firefighting, but sometimes certain duties take place in sequence depending on the situation, thus reducing the total number of people needed.
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Volunteer Staffing The membership of most of the volunteer fire departments in Carlton County is limited to approximately 20-30 individuals. This is primarily driven by their relief fund arrangements rather than the actual number of individual necessary to ensure adequate manpower availability on a 24- hour basis.
Comparing operational staff available for response from the volunteer fire departments to the CFAI’s critical staffing sample indicates a significant percentage of each department’s membership is required to meet initial critical task staffing needs for emergencies occurring in moderate and high risk properties. This phenomenon, coupled with extended turnout times associated with rural and many suburban volunteer departments and the excessive travel times encountered in Carlton County, poses a significant challenge to successful emergency intervention and control in properties of all risk categories.
It is understood that maximum risk properties must be addressed by rapidly deploying multiple alarms and mutual aid resources. Significant emergencies usually occur infrequently in maximum risk properties, necessitating comprehensive pre-emergency plans for rapid deployment that are regularly practiced and updated.
The part of the response time sequence in direct control of the volunteer departments is their turnout time (the time required to leave the station once the station has been notified of an incident). Volunteer fire departments usually address rapid turnout time in two ways; members living in close proximity to the station and/or members required to standby in the station or in close proximity to the station.
Supplying the initial critical staffing for moderate and high risk incidents for volunteer departments is almost always directly related to the overall number of members certified to respond in a timely fashion. When the time of day, day of the week, and other demands on volunteer members are factored into the available response crew population, the larger the membership pool the higher the expectation that a sufficient number of certified members will respond.
The answer to increasing the expectation of sufficient numbers of volunteer members being available for initial response is the recruitment and retention of greater numbers of members. A number of resources are available as a reference for guidance to address volunteer fire/rescue
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member recruitment and retention programs. As an example, the Volunteer Fire Council of the International Association of Fire Chiefs and ESCi both provide comprehensive documents outlining proven programs.
Career Staffing The Cloquet Fire Department employs 20 operational personnel and provides a staffing complement of four individuals on a rotating shift basis as a career staffed department. Their fire chief is on-duty during weekdays. Cloquet supplements staffing through an elaborate call-back policy. While this system has been is place for some time, the increased service delivery demands, both operational and non-operational, have strained this resource in a number of ways.
By all standards the Cloquet Fire Department is understaffed. The department actually has more in-service, front line apparatus than the number of on-duty personnel available to drive them from the station. A comparison of the CFD’s standard of coverage compared to the CFAI’s critical task minimum staffing is outlined in the following figure:
Figure 148: CFAI/Cloquet FD Critical Task Minimum Staffing Comparison Cloquet Level of Risk CFAI FD Low (Rubbish, Vehicle, Rescue) 6 4 Moderate (Dwelling) 13 4 High (Commercial, Mid-rise) 17 4 Maximum (Hospital, Mall) 49 4
Considering a dwelling fire (moderate risk) in the City of Cloquet, the Cloquet Fire Department is capable of providing approximately 31 percent of the staffing associated with the CFAI’s critical task minimum staffing example. The department must depend on nine off-duty personnel to respond within the first few moments of dispatch in order to have sufficient staff on scene to conduct safe and effective operations at a moderate risk structure fire. CFD’s staffing is approximately 24 percent of the minimum to achieve critical tasks associated with a mid-rise residential or commercial (high risk) property fire.
Were the City of Cloquet to determine that their minimum fire department staffing should be capable of handling an initial attack for a dwelling fire, nine additional on-duty positions would be needed. This would require hiring (4.2 X 9 = 37.8) 38 personnel to increase the on-duty staff by
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nine on a twenty-four hour basis. A multiplier of 4.2 is used to provide a twenty-four hour individual on a daily basis considering leave, training, and other predictable absences.
The average compensation for a Cloquet Fire Department firefighter/paramedic is $45,116 per year. Assuming a 30 percent fringe benefit cost per employee, the average employer compensation cost per employee to the city is $58,650.80, plus other expenses associated with employment such as minimum staffing, uniforms, protective clothing, and training, etc.
Hiring 38 individuals to increase the fire department on-duty staff by nine firefighters would represent a salary and wage cost of $2,228,730.40 per year, plus associated expenses.
It seems relatively evident that hiring sufficient on-duty staff to be capable of immediate deployment of 13 firefighters to a moderate risk fire may exceed the fiscal capacity of the city at this time. Still, the manpower issue is not to be ignored. As an alternative, the city may wish to incrementally increase on-duty career staffing, support changes in the EMS system to decrease the impact of EMS responses to its fire protection resources, improve relationships with surrounding agencies to increase early automatic aid response, and shore up its off-duty call back system for employees.
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Section IV - Recommendations
The task of this study was to examine the current conditions for fire and emergency medical services in Carlton County, project future growth in community risk and service demand, identify the critical issues the system will face in meeting the future challenge, and recommend options for improvement.
Eight significant options are presented for consideration and/or implementation to provide for improvement in effectiveness, consistency, and coordination of the current emergency services system in Carlton County. These options address staffing, facilities, fleet requirements, and funding, and in many cases present variations or alternatives from each other in addressing these issues.
All of these options were presented to permit the reader to understand that there may be multiple ways to address certain critical issues, and that each alternative was considered and weighed carefully. Next, ESCi will present those options that our evaluation considers to be most likely to succeed, and most likely to have a positive effect.
After careful analysis of the critical issues facing Carlton County, Emergency Services Consulting inc. recommends the implementation of the following options at this time: • Option One: Provide EMS Funding Stability through a Countywide Tax • Option Two: Countywide ALS Provision through Current ALS Providers • Option Six: Expansion of Automatic Aid in Northeast Carlton County • Option Eight: Additional Staffing for Fire and EMS
The following paragraphs summarize these findings and conclusions.
Option One: Provide EMS Funding Stability through a Countywide Tax A task force consisting of representation of the governmental entities in Carlton County should be assembled for the purpose of achieving consensus on the development of a primary role for Carlton County in the coordination and funding of countywide emergency medical services. Since certain municipalities are now providing this service directly without County involvement and
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certain areas are established in ambulance service districts, this would require a collective decisions to redirect that responsibility to the County.
As stated earlier, this centralization of responsibility for EMS system planning and design, as well as funding, would not preclude the continuation of actual service delivery through existing providers. There are many areas of the Country where various local agencies deliver EMS services, but their system is under the authority and financing of a regional, centralized government such as a county or service district.
The effort to achieve such a consensus would, no doubt, require careful consideration, negotiations, and planning to ensure that municipalities still retained involvement in the decision- making processes involving such a critical service to their citizens. Still, despite the fact that it would represent a significant change in the governance of the EMS system, the long-term coordination and planning for consistent countywide service delivery could permit a regional approach that was more effective and efficient in the long-term, with a fair distribution of costs to all who benefit from the service.
Once centralized direction over the EMS system is established, a decision on the best method for funding should be made. It has been demonstrated over and over that patient transport fees alone are rarely sufficient to support a modern emergency medical delivery system in suburban and rural areas due to lower service demand. There will need to be an established method to produce sufficient funding to supplement the cost of the system, and allow improvements that result in more consistent and timely delivery of emergency medical care at both the BLS and ALS level.
Though several alternatives are offered in this report, the simplest method may be through the use of the County General Fund tax rate. This permits the cost of EMS to be distributed across the entire County by a countywide tax rate that is already in place.
However, a second alternative to establish a special service district (EMS or ambulance district) is also possible, though there would need to be a process to absorb existing departments/districts into the newly formed special service district. The alternative of a special service district would likely be the best method to pursue, if any individual municipalities opted out of the countywide system and chose to retain their own EMS services. The special district could be designed without those municipalities included.
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Option Two: Countywide ALS Provision through Current ALS Providers Based on current service demand, ESCi’s analysis indicated that ALS could be delivered to over 90 percent of the patients in the County within 15 minutes, so long as an ALS unit is available in both the Moose Lake and Cloquet area at all times. Thus, the emergency medical system would need to be designed for delivery of ALS from both those locations, at a minimum, 24-hours a day. Upgrading to ALS delivery in all four ambulance providers would appear to be redundant, particularly in the case of Carlton, at this time.
Funding for the system needs to be sufficient for both Cloquet and Mercy to maintain paramedic level response personnel at all times. Since this service would be delivered countywide, the fire protection resources in the City of Cloquet should not be unacceptably reduced on a routine basis in order to provide the service.
While the report provides a map to indicate the appropriate division of the two ALS zones for these two agencies, ESCi does not necessarily believe that ALS delivery to areas covered by a BLS transport ambulance provider (Carlton and Cromwell) need to be done in a full transport-capable vehicle. The use of an ALS quick response vehicle or chase car , such as a Chevrolet Tahoe or Ford Explorer, may permit some reduction in manpower costs by sending only one paramedic to do ALS intercept in the other BLS ambulance districts. The second paramedic could remain in the ALS agency’s home area to respond to a second call with assistance from paid-on-call or off-duty personnel.
The County and these two providers should work together to establish a fair and equitable budget covering the cost of countywide ALS delivery, including paramedic salaries to provide countywide service. In addition to fees charged for patient transport, patient fees for intercept ALS services should be maintained at maximum allowable Medicare reimbursement levels, to be certain that ALS fees are recouped, even when a BLS provider’s unit is used for the transport.
Option Six: Expansion of Automatic Aid in Northeast Carlton County While full consolidation or merger of the four fire agencies in northeastern Carlton County may be an admirable future goal, it is unlikely that the timing is right for the success of such a move at this time. However, if significant advancements are made in cooperative service delivery now, such as increased automatic aid, regional use of specialty apparatus, and more combined training
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programs, their future consolidation or merger becomes more likely as personnel see less and less differences in the agencies, and find more and more in common.
A future merger or consolidation would permit a fire district to be formed with tax authority to distribute the costs of regional fire protection over all those who benefit from it. The regional approach could deliver improved service at less cost. However, there are many benefits that can be derived in the meantime.
Significant advancements in the use of automatic aid can improve manpower response in the entire region. More cooperation in service delivery may result in less redundant apparatus purchases or even joint ownership of apparatus that benefits multiple jurisdictions. Combined training programs will surely mean that firefighters will have more in common and work more smoothly together on emergency incidents. Training programs, when shared, may reduce costs as expenses are shared by more than one community.
The development of close cooperative service delivery, short of a full consolidation or legal merger, can still give the appearance of nearly seamless service delivery. This can enhance fire protection across the entire region making fewer citizens wonder if their fire protection would be better if they simply lived on the other side of an invisible jurisdictional line.
Option Eight: Additional Staffing for Fire and EMS The volunteer agencies within Carlton County should re-examine the policies and regulations that constrain the quantity of members they can maintain. Wherever possible, additional recruitment of members should occur through coordinated and joint countywide advertising and recruitment campaigns involving as many agencies as possible. Additional qualified members on call at given moment in the County is almost certain to eventually equate to a higher number of responders being available for any significant incident, regardless of whose jurisdiction it is in.
The City of Cloquet, given its inherent community fire protection risks as a regional center of commerce and industry, should plan to strengthen its on-duty staff. As indicted earlier, the involvement by CFD in providing ALS services countywide should not be done at the expense of the city’s fire protection resources. County level funding for EMS, particularly ALS response, should help by making it possible for Cloquet to add adequate staff to perform this service without detracting from its fire protection responsibilities.
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Still, Cloquet would be wise to continually monitor its ability to generate sufficient staffing to conduct the necessary critical tasks at fires involving the common risks found within the community. Where necessary, more career staff should be added to make this possible. In addition, more advanced use of automatic aid and on-call responders can supplement available career staff and assist in this goal.
Conclusion Emergency Services Consulting inc. believes that good master planning decisions are best made by informed local elected officials, and we have endeavored to provide adequate data and analysis to support the decision-making effort. Carlton County, as well as the individual municipalities within it, can use the information and recommendations to confidently select an appropriate future deployment strategy, knowing that the decision is based on sound principles of data analysis.
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Appendix
Apparatus Condition Chart
Like new condition. No body or paint defects. Clean compartmentation. Excellent Interior cab complete, in full working order with no modifications. No significant defect history. Age is less than 25 percent of life expectancy. Body and cab have good appearance with no rust and only minor cosmetic defects or dents. Clean compartmentation with no visible rust or corrosion. Good Interior cab is in full working order and good appearance. Normal maintenance history with no significant defects or high downtime. Age is less than 75 percent of life expectancy. Body and cab have weathered appearance with minor surface rust and some cosmetic defects or dents. Unimpeded compartmentation with only surface rust or corrosion. Interior cab is in reasonable working order and appearance. Fair Only repairable tank or plumbing leakage. Showing increasing age-related maintenance, but with no major defects or unreasonable downtime. Age is less than 100 percent of life expectancy. Body and cab have weathered appearance with surface corrosion, cosmetic defects or dents, and minor rust-through of non-structural metals (body panels). Unimpeded compartmentation with significant surface rust or corrosion and/or minor rust-through (not affecting use). Interior cab is in Serviceable rough, but working order, often with local repairs or modifications to compensate for problems. Occasional or intermittent tank or plumbing leakage. Showing increasing age-related maintenance, but with no major defects or unreasonable downtime. Most service parts still available. Age is greater than 100 percent of life expectancy. Body and cab have weathered appearance with surface corrosion, cosmetic defects or dents, and visible rust-through of non-structural metals (body panels). Significant rust or corrosion is present in structural or support members. Use of compartmentation is impeded with significant corrosion and Poor rust-through. Interior cab is in rough condition with defects impeding safe and proper use. Unrepairable tank or plumbing leakage. Problematic age-related maintenance, major defects, or unreasonable downtime are evident. Service parts difficult or impossible to obtain. Age is greater than 100 percent of life expectancy. Vehicle exceeds its GVWR.
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Fire and Emergency Medical Events Dynamics
Dynamics of Fire in Buildings Most fires within buildings develop in a predictable fashion, unless influenced by highly flammable material. Ignition, or the beginning of a fire, starts the sequence of events. It may take some minutes or even hours from the time of ignition until flame is visible. This smoldering stage is very dangerous, especially during times when people are sleeping, since large amounts of highly toxic smoke may be generated during early phases.
Once flames do appear, the sequence continues rapidly. Combustible material adjacent to the flame heats and ignites which in turn heats and ignites other adjacent materials if sufficient oxygen is present. As the objects burn, heated gases accumulate at the ceiling of the room. Some of the gases are flammable and highly toxic.
The spread of the fire continues quickly. Soon the flammable gases at the ceiling reach ignition temperature. At that point, an event termed flashover takes place; the gases ignite, which in turn ignites everything in the room. Once flashover occurs, damage caused by the fire is significant and the environment within the room can no longer support human life.
Flashover usually happens about five to eight minutes from the appearance of flame in typically furnished and ventilated buildings. Since flashover has such a dramatic influence on the outcome of a fire event, the goal of any fire agency is to apply water to a fire before flashover takes place.
Perhaps as important as preventing flashover is the need to control a fire before it does damage to the structural framing of a building. Materials used to construct buildings today are often less fire resistive than the heavy structural skeletons of older frame buildings. Roof trusses and floor joists are commonly made with lighter materials more easily weakened by the effects of fire. Light weight roof trusses fail after five to seven minutes of direct flame impingement. Plywood I-beam joists can fail after as little as three minutes of flame contact. This creates a very dangerous environment for firefighters.
In addition, the contents of buildings today have a much greater potential for heat production than in the past. The widespread use of plastics in furnishings and other building contents rapidly
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accelerate fire spread and increase the amount of water needed to effectively control a fire. All of these factors make the need for early application of water essential to a successful fire outcome.
A number of things must happen quickly to make it possible to achieve fire suppression prior to flashover. The figure below illustrates the sequence of events.
Figure 149: Fire Growth vs. Reflex Time
The reflex time continuum consists of six steps, beginning with ignition and concluding with the application of (usually) water. The time required for each of the six components varies. The policies and practices of the fire department directly influence four of the steps, but two are only indirectly manageable. The six parts of the continuum are:
1. Detection: The detection of a fire may occur immediately if someone happens to be present or if an automatic system is functioning. Otherwise, detection may be delayed, sometimes for a considerable period. 2. Report: Today most fires are reported by telephone to the 9-1-1 center. Call takers must quickly elicit accurate information about the nature and location of the fire from persons who
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are apt to be excited. A citizen well trained in how to report emergencies can reduce the time required for this phase. 3. Dispatch: The dispatcher must identify the correct fire units, subsequently dispatch them to the emergency, and continue to update information about the emergency while the units respond. This step offers a number of technological opportunities to speed the process including computer aided dispatch and global positioning systems. 4. Turnout: Firefighters must don firefighting equipment, assemble on the response vehicle, and begin travel to the fire. Good training and proper fire station design can minimize the time required for this step. 5. Response: This is potentially the longest phase of the continuum. The distance between the fire station and the location of the emergency influences reflex time the most. The quality and connectivity of streets, traffic, driver training, geography, and environmental conditions are also a factor. 6. Set up: Past, once firefighters arrive on the scene of a fire emergency, fire apparatus are positioned, hose lines stretched out, additional equipment assembled, and certain preliminary tasks performed (such as rescue) before entry is made to the structure and water is applied to the fire.
As is apparent by this description of the sequence of events, application of water in time to prevent flashover is a serious challenge for any fire department. It is critical, though, as studies of historical fire loss data can demonstrate.
The National Fire Protection Association (NFPA) studied data from residential structures occurring between 1994 and 1998 in order to analytically quantify the relationship between the growth of a fire beyond the room of origin and losses in life and property. As the figures below clearly indicate, fires contained to the room of origin (typically extinguished prior to or immediately following flashover) had significantly lower rates of death, injury, and property loss when compared to fires that had an opportunity to spread beyond the room of origin (typically extinguished post-flashover). Incidents in which a fire spreads beyond the room where it originates are likely to experience six times the amount of property loss and have almost nine times greater chance of resulting in a fatality.
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Figure 150: National Data - Fire Growth to Life and Property Loss Fire Extension in Residential Structure Fires 1994 - 1998 Rates per 1,000 Fires Civilian Civilian Dollar Loss Extension Deaths Injuries Per Fire Confined to room of origin 2.32 35.19 $3,385 Beyond room of origin; 19.68 96.86 $22,720 confined to floor of origin Beyond floor of origin 26.54 63.48 $31,912 Data from NFPA Annual Fire Experience Survey and United State Fire Administration National Incident Reporting System
Emergency Medical Event Sequence Cardiac arrest is the most significant life threatening medical event. A victim of cardiac arrest has mere minutes in which to receive definitive lifesaving care, if there is to be any hope for resuscitation.
Recently, the American Heart Association (AHA) issued a new set of cardiopulmonary resuscitation guidelines designed to streamline emergency procedures for heart attack victims, and to increase the likelihood of survival. The AHA guidelines include new goals for the application of cardiac defibrillation to cardiac arrest victims.
Heart attack survival chances fall by seven to ten percent for every minute between collapse and defibrillation. Consequently, the AHA now recommends cardiac defibrillation within five minutes of cardiac arrest.
As with fires, the sequence of events that lead to emergency cardiac care can be visually shown, as in the following figure.
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Figure 151: Cardiac Arrest Event Sequence
The percentage of opportunity for recovery from cardiac arrest drops quickly as time progresses. The stages of medical response are very similar to the components described for a fire response. Recent research stresses the importance of rapid cardiac defibrillation and administration of certain drugs as a means of improving the opportunity for successful resuscitation and survival. An Oregon fire department recently studied the effect of time on cardiac arrest resuscitation and found that nearly all of their saves were within one and one-half miles of a fire station, underscoring the importance of quick response.
People, Tools, and Time Time matters a great deal in the achievement of an effective outcome to an emergency event. Time, however, isn’t the only factor. Delivering sufficient numbers of properly trained, appropriately equipped, personnel within the critical time period completes the equation.
For medical emergencies this can vary based on the nature of the emergency. Many medical emergencies are not time critical. However, for serious trauma, cardiac arrest, or conditions that may lead to cardiac arrest, response time is very critical.
Equally critical is delivering enough personnel to the scene to perform all of the concurrent tasks required to deliver quality emergency care. For a cardiac arrest, this can be up to six personnel;
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two to perform CPR, two to set up and operate advanced medical equipment, one to record the actions taken by emergency care workers, and one to direct patient care.
Thus, for a medical emergency, the real test of performance is the time it takes to provide the personnel and equipment needed to deal effectively with the patient’s condition, not necessarily the time it takes for the first person to arrive.
Fire emergencies are even more resource critical. Again, the true test of performance is the time it takes to deliver sufficient personnel to initiate application of water on the fire. This is the only practical method to reverse the continuing internal temperature increases, and ultimately prevent flashover. The arrival of one person with a portable radio does not provide fire intervention capability and should not be counted as arrival by the fire department.
In order to legally enter a building to conduct interior firefighting operations at least four personnel must be on scene. The initial arrival of effective resources should be measured at the point in time when at least four personnel, properly trained and equipped, have assembled at the fire.
Emergency service agencies should have clearly defined response performance objectives established to allow evaluation of capability and service delivery. An organization’s performance objectives should clearly state both the current and desired emergency service capabilities in very measurable terms. For emergency response, performance objectives should define response performance using both time and resource criteria. For example:
• Provide for the arrival of adequate resources to initiate basic emergency medical services at the scene of any medical emergency within “X” minutes following dispatch, 90 percent of the time. • Provide for the arrival of adequate resources to initiate interior fire suppression operations at the scene of any fire within “X” minutes following dispatch, 90 percent of the time.
With specific performance criteria, a fire department can develop deployment methodologies to achieve desired levels of performance, and can quickly identify when conditions in the environment degrade performance.
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