Fire Department
Appraisal & Master Plan
for the
Cloquet Area . Fire District
Conducted by
November, 2014
McGrath Consulting Group, Inc. P.O. Box 190 Wonder Lake, IL 60097 Office (815) 728-9111 Fax (815) 331-0215 Email [email protected] www.mcgrathconsulting.com
©Copyright 2014 McGrath Consulting Group, Inc. All rights reserved. No part of this document 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 McGrath Consulting Group, Inc.
McGrath Consulting Group, Inc. Page 2
Table of Contents
Executive Summary ...... 13 Introduction ...... 13 Culture Observations ...... 14 Department Overview ...... 14 Governance ...... 14 Emergency Activities ...... 15 Response Times ...... 16 EMS System Oversight ...... 16 Standard of Response Coverage ...... 17 National/Industry Standards ...... 17 National Fire Protection Association (NFPA) – non mandatory ...... 17 Occupational Safety and health Administration (OSHA) – mandatory ...... 18 Insurance Service Offices, Inc. (ISO) – non mandatory ...... 18 Center for Public Safety Excellence (CPSE) – non mandatory ...... 19 Staffing ...... 19 Human Resources ...... 20 Public Safety Answering Point (PSAS aka. Dispatch) ...... 22 Facilities ...... 22 Apparatus ...... 23 Training ...... 23 Fire Prevention/Safety Education ...... 24 Fiscal ...... 24 Introduction ...... 25 Culture Observations...... 29 Strengths, Weaknesses, Opportunities, Threats Analysis (SWOT) ...... 29 CAFD Perspective of Importance ...... 31 “The Most Significant Challenge for the CAFD” ...... 32 “The Most Significant Opportunity for the CAFD” ...... 34 Recommendation – Department Culture...... 35 Department Overview ...... 36 Mission Statement ...... 37 CAFD Organization Chart ...... 37 Protection Area ...... 38 Staffing ...... 39 EMS ...... 40 Governance ...... 42 Cloquet Area Fire District Board ...... 44 Responsibilities of a Fire Board ...... 44 Understands the Role of the Board and Fire Chief ...... 44 Taxpayers Liaison ...... 45 Report to the Three Governing Bodies ...... 45 Appointment of the Fire Chief ...... 45 Appointment of the Assistant Chief ...... 45 Approval of Elected Fire Department Officers ...... 46 McGrath Consulting Group, Inc. Page 3
Hiring of New Department Members ...... 46 Monitor Fire Department Budget ...... 46 Performance Review of the Command Staff (Chief) ...... 46 Oversee all Department Fiscal Activities...... 46 Capital Planning ...... 47 Set Department Goals in Conjunction with the Chief ...... 47 Ensure Open and Honest Communication ...... 47 Recommendations – Governance...... 48 Emergency Activities ...... 49 Cloquet Data Challenges ...... 49 Ten-Year Emergency Activity Totals ...... 51 Significant of Ten-Year Increase ...... 52 Breakdown of EMS and Fire Call Totals ...... 52 Incident by Nature ...... 53 Comparing Cloquet to National & State of Minnesota NFIRS Statistics – 2013 ...... 55 Series 700 – False Alarms/Calls ...... 55 Series 300 – Rescue/Emergency Medical Services ...... 56 Emergency Service Trends ...... 57 Simultaneous/Overlapping Incidents ...... 57 Cloquet Simultaneous/Overlapping Data ...... 58 Incidents by Time of Day...... 59 Cloquet Incidents by Time of Day Data ...... 59 Incidents by Day of the Week ...... 61 Incidents by Month ...... 62 Incidents by Districts ...... 63 Incidents by Shift ...... 66 Mutual/Automatic Aid ...... 66 Mutual Aid Box Alarm (MABAS) ...... 67 Recommendations – Emergency Activities ...... 69 Response Times ...... 71 CAFD Public Safety Answering Point (PSAP) ...... 71 Response Time Components ...... 71 CAFD Notification Times ...... 73 Recommendations – Response Times ...... 74 EMS System Oversight ...... 75 Paid-On-Call EMS Participation ...... 76 EMS Involvement in Station #2 & #3 ...... 77 Proposed Paid-On-Call EMS Involvement ...... 78 Paid-On-Call EMS Station Coverage ...... 78 EMS Training ...... 78 Emergency Patient Transports ...... 79 Trauma Level Hospital Description ...... 80 Non-Emergency Patient Inter-facility Transfers ...... 81 EMS Responses by City/Town ...... 83 Recommendations – EMS System Oversight ...... 84
McGrath Consulting Group, Inc. Page 4
Standards of Response Coverage ...... 85 Standards of Coverage Overview ...... 86 Determining Your SOC Benchmarks ...... 87 National Fire Protection Association (NFPA) ...... 87 Commission on Fire Accreditation International (CFAI) ...... 87 Key Elements of a SOC Plan ...... 87 SORC Integration with CAFD ...... 91 Recommendations –Community Risk/Standards of Response Coverage ...... 92 National/Industry Standards ...... 93 National Fire Protection Association (NFPA) ...... 93 NFPA 1710 or NFPA 1720 ...... 94 Why Does It Matter Which NFPA Code ...... 96 Suppression Staffing and Response NFPA 1720 Standard ...... 96 NFPA 1720 Special Interest ...... 97 4.3 Staffing and Deployment ...... 97 4.4 Annual Evaluation ...... 98 Quadrennial Report ...... 98 Fire Suppression Operations ...... 98 Occupational Safety and Health Administration (OSHA) ...... 99 Insurance Service Offices, Inc. (ISO) ...... 101 ISO Changes ...... 101 Fire Department Section ...... 103 Emergency Communications Section ...... 104 Water Supply Section ...... 104 Credit Point Changes ...... 104 Ongoing Evaluation ...... 105 ISO Point Scale ...... 106 Cloquet Area Fire District ISO Classification ...... 106 Center for Public Safety Excellence (CPSE) ...... 109 Recommendations – National/Industry Standards ...... 111 Staffing ...... 112 Types of Staffing Methodologies ...... 112 Career Shift Employees ...... 113 Paid-On-Call/Volunteer Employees ...... 114 Paid-On-Premise (Part-time) Employees ...... 117 Privatization/Contractual ...... 117 The Elephant ...... 118 Resolving the Elephant ...... 119 CAFD Elephant Resolution Approach ...... 120 National and State Staffing Methodology Comparison ...... 121 Future CAFD Staffing Methodology ...... 123 Station #1 – Future Staffing ...... 124 Off-duty Career Callback ...... 125 Addressing Overtime Callback: ...... 127 Additional Career Employees ...... 127
McGrath Consulting Group, Inc. Page 5
Paid-On-Call Supplement ...... 128 Paid-On-Premise Supplement ...... 128 Insure Competency ...... 129 Battalion Chiefs Schedule ...... 129 Consistency of Supervision ...... 130 Stations #2 and #3 – Volunteer (Paid-on-Call) Staff ...... 130 Training/Safety Officer ...... 131 Moving the Administration into a New Headquarters Facility ...... 131 Assistant Fire Chief ...... 132 Assessment Center Testing ...... 132 Administrative Assistant ...... 133 Recommendations – Staffing ...... 133 Human Resources ...... 135 Human Resources Administration ...... 135 Recommendations Human Resources Administration: ...... 136 Recruitment Process ...... 136 Recommendations Recruitment: ...... 142 New Employee Orientation ...... 143 Recommendations: New Employee ...... 145 Compensation ...... 145 Fair Labor Standards Act (FLSA) ...... 147 Overtime and Work Cycle ...... 149 Kelly Days ...... 151 Union Wage Schedule ...... 152 Exempt versus Hourly ...... 154 Recommendations: Compensation ...... 155 Performance Management ...... 156 Recommendations: Performance Management ...... 157 Promotions ...... 157 Age & Years of Experience ...... 158 Training and Involvement ...... 161 Recommendations: Promotion ...... 162 Discipline ...... 162 Recommendations: Discipline ...... 163 Personnel Manual, SOG’s, and Union Contact ...... 163 Recommendations Policy Manual & SOG’s ...... 164 Personnel Records ...... 164 What Should Be In Personnel Files ...... 164 Records Retention ...... 166 Public Safety Answering Point (Dispatch) ...... 168 Carlton County PSAP ...... 168 Dispatchers/Telecommunicators ...... 168 Carlton County Training ...... 170 Carlton County PSAP Facility ...... 171 St. Louis County PSAP ...... 171
McGrath Consulting Group, Inc. Page 6
Dispatchers/Telecommunicators ...... 172 St. Louis County PSAP Training ...... 173 Quality Control/Assurance Program ...... 174 St. Louis County PSAP Facility ...... 174 St. Louis County PSAP Telephone Traffic ...... 174 Public Safety Answering Point Industry Standards ...... 176 Answering Time Standard ...... 176 NFPA 1221 – 2013 edition ...... 177 National Emergency Number Association (NENA) ...... 177 Associated Public-Safety Communications Officials (APCO) ...... 177 Notification Time Standards ...... 178 Dispatch Time: Phone Rings to FD Notified ...... 178 PSAP Notification Times ...... 179 Recommendations – Dispatch/PSAP ...... 180 Facilities ...... 181 Station Ownership ...... 181 Fire Station #1 ...... 181 Fire Department Apparatus Bay ...... 182 Emission Exhaust ...... 182 Vehicle – Storage ...... 183 Support/Living Area ...... 183 Facility in General ...... 184 Future Use of Station #1 ...... 185 GIS Time/Distance Mapping ...... 185 Station #2 ...... 188 Apparatus Bays ...... 188 Vehicle Storage ...... 189 Support/Living ...... 189 Facility in General ...... 189 GIS Time/Distance Mapping ...... 189 Station Overlap Station #1 and Station #2 ...... 190 Station #3 ...... 191 Apparatus Bays ...... 192 Vehicle Storage ...... 192 Support/Living Area ...... 193 Administrative Office/Training Classroom ...... 193 Facility in General ...... 195 Future Use of Station #3 ...... 195 GIS Time/Distance Mapping ...... 195 Station Overlap Station #1 and Station #3 ...... 196 Overlap of Stations #1, Station #2, and Station #3 ...... 198 Overlap Findings ...... 198 Consolidated Headquarter Station ...... 199 Addressing the Need for a New Facility ...... 199 Response Time ...... 200
McGrath Consulting Group, Inc. Page 7
Potential Response Delays ...... 201 Traffic Control ...... 201 Future Service Needs ...... 201 Volunteer (Paid-On-Call) Proximity...... 202 Risk Assessment ...... 202 Safe Egress to Roadways ...... 203 Available Property ...... 203 Functionality and Purpose of the Facility ...... 203 Citizen Perception ...... 204 Cost ...... 204 CAFD Future Station ...... 205 Suggested Station Components ...... 205 New Facility Costs ...... 207 Furniture, Fixture, Equipment (FFE) ...... 208 Storage Facility for Large Training Resources ...... 209 Recommendations – Facilities ...... 210 Apparatus ...... 211 Apparatus Ownership ...... 212 Apparatus Maintenance ...... 212 Condition of Apparatus and Vehicles ...... 213 Odometers vs. Engine Hour Meters ...... 213 Sufficiency of Apparatus ...... 214 Apparatus Replacement ...... 214 Apparatus/Vehicles Replacement Schedule ...... 215 CAFD Apparatus Replacement Dates ...... 216 Ambulance Rechassising ...... 217 Recommendations-Apparatus ...... 217 Training ...... 219 Division Chief Training & Safety ...... 222 Training Calendar ...... 223 Blood-borne Pathogen Training Verification ...... 226 Additional Training Verification ...... 227 CAFD Training Records ...... 228 Fire Training Hours ...... 228 EMS Training Hours ...... 229 Cloquet Training Record Concern ...... 231 Standard Lesson Plans ...... 231 Training Disciplines and Delivery ...... 232 The Liability of Poor Training ...... 236 Competencies vs. Training Hours ...... 237 Training Certificates ...... 239 Insurance Services Office (ISO) ...... 241 Everyone Goes Home® ...... 242 Recommendations: Training ...... 243 Fire Prevention/Safety Education ...... 247
McGrath Consulting Group, Inc. Page 8
Fire Inspections ...... 247 Fire Pre-plans ...... 247 Fire Investigations ...... 249 Cloquet Public Education ...... 249 Risk Watch Program ...... 250 Recommendations – Fire Prevention/Safety Education...... 251 Fiscal...... 253 Revenues ...... 253 Property Taxes ...... 253 Ambulance Fees ...... 254 Intergovernmental Revenues ...... 254 Expenditures ...... 255 Personal Services ...... 255 Overtime ...... 255 Station Coverage Callback Only ...... 256 Other Services and Charges ...... 258 Grants ...... 258 Net Assets ...... 258 Financial Policies ...... 259 Cloquet Area Fire Comprehensive Financial and Budget Policies ...... 259 General Financial Philosophy ...... 260 Budget and Net Asset Policy ...... 260 1. Ongoing expenditures are funded by ongoing revenues ...... 261 2. Net Assets ...... 261 3. Contingency funds ...... 261 4. Financial forecasting ...... 261 5. Use of Net Assets to balance the budget ...... 262 6. Restricted revenues and expenditures ...... 262 7. Accrued Employee Benefits ...... 262 Reserve and Fund Policies ...... 262 Revenue Policy ...... 262 Debt Management Policies ...... 263 1. Debt shall not be used for Operating Expenses...... 263 2. Term of Debt ...... 263 3. Method of Sale of Bonds and Notes ...... 263 4. Refunding Bonds ...... 264 5. Preservation of Credit Rating...... 264 Accounting and Financial Reporting Policies ...... 264 Audit Policy ...... 264 Insurance Policy ...... 265 Capital Budget and Planning Policies ...... 265 Comprehensive resource plan ...... 265 Impact on overall Capital and Operating Budgets ...... 266 Contingencies ...... 266 Recommendations - Fiscal ...... 266
McGrath Consulting Group, Inc. Page 9
Summary of Recommendations/Implementation ...... 268 Appendix A: Data Request ...... 277 Appendix B: New Employee Checklist Sample ...... 282 Appendix C: Personnel Manual Critique ...... 284 Appendix D: Local 880 Contract Review ...... 290 Appendix E: St. Louis County PSAP Agencies Served ...... 292 Appendix F: NFPA 1901 Required Apparatus Equipment ...... 293
Table of Figures
Figure 1: Most Significant Challenge for CAFD ...... 33 Figure 2: CAFD Organization Chart at Time of Study...... 37 Figure 3: Ten-Year Total Emergency Activities ...... 51 Figure 4: Ten-Year Percent Change in Call Totals ...... 52 Figure 5: Three-Year Averages Fire / EMS ...... 53 Figure 6: Cloquet NFIRS Categories – Three-Year Study Period ...... 54 Figure 7: Incidents by Time of Day ...... 60 Figure 8: Three-Year Average - Time of Day ...... 61 Figure 9: Three-Year Average - Calls by Day of the Week ...... 61 Figure 10: Day of the Week - Each Year ...... 62 Figure 11: Three-Year Average - Calls by Month ...... 63 Figure 12: Calls by Month for 2011 - 2013 ...... 63 Figure 13: ISO Department Class - National ...... 107 Figure 14: ISO Department Class for Minnesota ...... 108 Figure 15: Proposed Organization Chart ...... 124 Figure 16: Full-time Age Comparison - Career ...... 159 Figure 17: Full-time Years of Service Comparison - Career ...... 159 Figure 18: POC Age Comparison ...... 160 Figure 19: POC Years of Service Comparison ...... 160 Figure 20: St. Louis County PSAP 2013 Non 9-1-1 & 9-1-1 calls...... 175 Figure 21: St. Louis County PSAP - 2013 fire/EMS, police, total calls ...... 176 Figure 22: Station #1 - GIS 10 Minute Drive Time/Distance ...... 186 Figure 23: Station #1 - GIS 4 Minute Drive Time/Distance ...... 187 Figure 24: Station #2 - GIS 10 Min Drive Time/Distance...... 190 Figure 25: Overlap Stations #1 and #2 ...... 191 Figure 26: Fire Chief's Office ...... 193 Figure 27: Work Area for Multiple Employees ...... 194 Figure 28: Training Classroom ...... 194 Figure 29: Station #3 - GIS 10 Min Drive Time/Distance...... 196 Figure 30: Overlap Station #1 & Station #3 ...... 197 Figure 31: Fire Training Hours – Six @ Random Members - 2013 ...... 229 Figure 32: EMS Requirement @ One Year ...... 230
McGrath Consulting Group, Inc. Page 10
Table of Tables
Table 1: SWOT Voting Points ...... 30 Table 2: CAFD SWOT Analysis Findings ...... 30 Table 3: CAFD Board Composition ...... 38 Table 4: Board Composition – CAFD ...... 42 Table 5: Breakdown Fire / EMS Calls ...... 53 Table 6: Cloquet NFIRS Categories 2011 - 2013 ...... 54 Table 7: Comparison National, State, & CAFD NFIRS Data - 2013 ...... 55 Table 8: Calls by District - 2011 only ...... 64 Table 9: Calls by City - EMS only...... 65 Table 10: Mutual Aid - Given & Received - Three-Year Study Period ...... 67 Table 11: NFPA 1720 – Response Times & Staffing ...... 73 Table 12: Average Response Times – Notification to Arrival ...... 73 Table 13: Hospital Transported To By CAFD - Patient Choice ...... 80 Table 14: Minnesota Trauma Level Hospital Description ...... 80 Table 15: Patient Transport to Hospitals - 2013 ...... 81 Table 16: Estimated Patient Transfers to Duluth ...... 82 Table 17: Calls by City - EMS only...... 83 Table 18: CAFD Employees Category ...... 95 Table 19: NFPA 1720: 4.3.2 Staffing and Response Time...... 96 Table 20: ISO PPC Point Scale ...... 106 Table 21: CAFD ISO Classifications ...... 106 Table 22: National & Minnesota ISO Classes ...... 107 Table 23: CAFD ISO Points Each Category of Survey ...... 108 Table 24: CAFD Staffing Methodology ...... 112 Table 25: Types of Departments & Percent of US Population Protected ...... 122 Table 26: Types of Staffing Compared to Population - National ...... 122 Table 27: Types of Staffing Compared to Population - Minnesota ...... 123 Table 28: Career Work Schedule - 21 Day FLSA Cycle ...... 125 Table 29: Career Staffing Numbers On-duty ...... 127 Table 30: Paid-on-call Staffing Stations #2 & #3 ...... 130 Table 31: FLSA Table for Fire Departments ...... 148 Table 32: CAFD Overtime Rates ...... 151 Table 33: Compression Analysis ...... 153 Table 34: Carlton County PSAP - Dispatcher Schedule ...... 169 Table 35: St. Louis County PSAP - Agencies Served ...... 171 Table 36: St. Louis County PSAP - Staffing ...... 172 Table 37: Dispatchers Shift Hours ...... 173 Table 38: Carlton County PSAP Notification Time - 2013 CAFD ...... 179 Table 39: St. Louis County PSAP Notification Time - 2013 CAFD ...... 179 Table 40: Overlap All Three Stations ...... 198 Table 41: New Facility Cost ...... 208 Table 42: Training Vehicle Storage ...... 209 Table 43: Estimated Costs Training Unit Storage ...... 209 Table 44: CAFD Apparatus Assignments...... 211 McGrath Consulting Group, Inc. Page 11
Table 45: Recommended Apparatus Replacement Schedule ...... 215 Table 46: CAFD Apparatus Replacement Dates ...... 216 Table 47: Sample Monthly Training Assignment Provided to the Captains ...... 225 Table 48: Compared Training Schedule to Actual Training ...... 226 Table 49: Random Training Records ...... 227 Table 50: Random Sample of Fire & EMS Hours - 2013...... 228 Table 51: EMT Re-Certification Requirements ...... 230 Table 52: Supervisor Training Topics ...... 235 Table 53: CAFD Certificates ...... 239 Table 54: CAFD Overtime Categories ...... 256 Table 55: Actual Overtime Costs ...... 256 Table 56: Emergency Callback Cost per Entry Level Member ...... 257 Table 57: Overtime Costs - Emergency Callback 5% to 100% ...... 257 Table 58: Recommendation Priority Table ...... 268
McGrath Consulting Group, Inc. Page 12
Executive Summary The executive summary is only a brief synopsis of the items discussed within this report. The report is extremely comprehensive, and includes information as to the rational or basis for the recommendations. Thus, to fully comprehend the recommendations, it is suggested that the report be read in its entirety. In addition to this report, the consultants have provided the board and fire department with an excel spreadsheet of all the recommendations in priority order. The fire department then has a working document in which it can re-prioritize the recommendations.
Introduction McGrath Consulting Group, Inc. was commissioned by the Cloquet Area Fire District Board of Directors to conduct an independent comprehensive audit and assessment of the Cloquet Area Fire District (CAFD) a consolidated fire/EMS department who provides, in whole or in part fire/EMS services to a 216 square mile district.
The consultants quickly discovered the CAFD had a significant challenge with accurate data which is an essential factor in formulating recommendations. Therefore, considerable effort was devoted in verifying the accuracy of the material provided to the consulting team. At best, the data provided in this report represents what the department leadership and consultants believe best represents the service provider.
For years the Cloquet Fire Department utilized a totally career staffing methodology; however, when the department consolidated into the CAFD it utilized a combination staffing methodology of career and paid-on-call. The transition from an all career to a combination department has resulted in a number of challenges, many of which still exist today.
Six consultants participated in the study, each addressed topics that were appropriate to their specific skills and expertise. Dr. Tim McGrath, CEO – Project Manager – 33 years fire/EMS (paramedic) experience Chief Robert Wilcox – Fire/EMS consultant – 35 years fire/EMS experience Chief Mike Stried – Fire/EMS consultant – 37 years fire/EMS (paramedic) experience McGrath Consulting Group, Inc. Page 13
Battalion Chief Larry Pieniazek – Fire/EMS consultant – 33 years fire/EMS experience Dr. Victoria McGrath, CEO McGrath Human Resources Group – Human Resources – 29 years public and private sector HR experience Mr. Robert Harrison – Fiscal Analysis/Administrative Leadership
The final report should be viewed as a book of opportunities to move a good fire department to becoming a great fire department. The reader might wish to study the results of the Strength, Weakness, Opportunity, and Threat (SWOT) analysis with board members and department leadership, which is a self-assessment strategic planning exercise.
Culture Observations The most meaningful opportunity for the CAFD is to address the current culture of the organization – the relationship between the career and paid-on-call members. The consultants refer to this environment as ignoring the “elephant in the room”. This “elephant” will prohibit any additional partnerships and threatens the very existence of the current consolidation.
The CAFD is too complex of an organization for a single administrative person, and needs a second-in-command added to create a leadership team. In addition, the administration of CAFD needs an assistant who can perform a variety of tasks allowing the leadership to focus on future opportunities and current challenges.
Department Overview This section describes the CAFD history, mission statement, organization chart, composition of the board of directors, protection area, current staffing, and emergency medical services which comprise 85.57% of the three-year study period average of emergency responses.
Governance A fire department cannot be managed by a committee. The board of directors needs to clearly define their expectations to the fire chief; provide the needed resources; and hold the chief accountable for meeting their goals. McGrath Consulting Group, Inc. Page 14
The current fire chief is everything from secretary to strategic planner and although this might have worked in the infancy of the consolidation, it is inadequate for the current organization. The current leadership team consists of a full-time fire chief and three shift battalion chiefs. Although the battalion chiefs might be well-qualified they are not there every day to add to the consistency of leadership. The CAFD is in need of an additional full-time administrator (assistant chief) to help develop and ensure consistency within the organization.
Emergency Activities Leadership uses data for: fiscal management, staffing, resource deployment, budgeting, purchasing, strategic planning, program development/implementation, program oversight/assessment, ensuring competency, ensuring cost-effective/efficient services, communication, and numerous other management functions. Therefore, data that is not accurate, relevant, and/or reliable is a detrimental to the essential management of an organization. Unfortunately, CAFD data fell into the description above.
The department needs a single source data/record management system that can integrate all types of activity data into a single source of accurate data when the system is queried. Formal training on the data/record management system should be provided to all officers as well as to those responsible for querying data. Most importantly a quality/assurance data program needs to be implemented.
Emergency responses have increased by 47.65% in the past nine years, yet staffing numbers have only increased by a single individual assigned to training and safety. No additional, daily on- duty staffing or administrative personnel have been added.
Currently, CAFD was not able to provide simultaneous (overlapping) incident data, which is essential information needed in determining staffing levels and resource deployment. Utilization of the paid-on-call staff into daily shift activities is highly encouraged and can result in a greater
McGrath Consulting Group, Inc. Page 15
number of on-duty personnel or the ability of keeping paramedics in-service for non-emergency transports.
Response Times Providing emergency services is all about response times. How long it takes the fire department to get on location to begin to mitigate the fire or provide emergency medical service is the primal issue. The components of response time include: detection, notification, turnout, travel, and mitigation times. Unfortunately, little credibility can be placed on the data provided due to: inability to provide requested data and inaccurate and/or contradictory data. For example: CAFD provided response time data for 2013 in four different formats, none of which matched. Therefore, the average of the four response times provided in 2013 was 4 minutes 57 seconds.
EMS System Oversight Although the callback of off-duty career members is beneficial in ensuring that a minimum of four individuals are in the station when an emergency call diminishes the on-duty personnel to below four, it does not mean that all four must be paramedics. The incorporation of paid-on-call and/or paid-on-premise is most benefical to the department and in the long run to the current career staff. Callback of off-duty personnel is extremely frequent and will result in negative impact on the individuals and department. Many of the career members indicated that the overtime was needed to maintain their lifestyle. The CAFD would benefit from a formal compensation study to ensure the career salaries are appropriate.
The utilization of paid-on-call and/or paid-on-premise personnel should be integrated into the daily on-duty staffing or at minimum be utilized to handle the non-emergency patient transfers which range from 22.5% to 68.0% of all EMS calls. The utilization of paid-on-call or paid-on- premise staff will require additional training and certification of members, a clear policy on what constitutes an emergency and non-emergency patient transfer, and close supervision to ensure adequate patient care is being provided.
McGrath Consulting Group, Inc. Page 16
As EMS calls increase consideration should be given to staffing an ambulance at Station #2 utilizing combination staffing.
Standard of Response Coverage The standard of response coverage (SORC) is an all hazard risk potential assessment of the district. The three most common elements referred to as standard of coverage include: Distribution – is measured by the percentage of the jurisdiction covered by first-due units within the adopted response time benchmarks.
Concentration – is the spacing of multiple resources arranged (close enough together) so that an initial "effective response force" can be assembled on-scene within adopted public policy time frames.
Reliability – is the probability, expressed as a percentage, that the required amount of staff and apparatus will be available when a fire or emergency call is received, and how often these resources are at the station.
In all, there are nine standard of response coverage elements assessed in determining the standard of response coverage.
National/Industry Standards National Fire Protection Association (NFPA) – non mandatory In a combination fire department (career and paid-on-call) the department should strive to meet either the NFPA 1710 – Organization and Development of Fire Suppression, Emergency Medical Operations, and Special Operations to the Public by Career Fire Departments; or the NFPA 1720 – Organization and Development of Fire Suppression, Emergency Medical Operations, and Special Operations to the Public by Volunteer/Paid-On-Call Fire Departments.
If the department staffing methodology is 85% or greater of career members it falls under the NFPA 1710 standard; however, if the department staffing methodology is 85% or greater volunteer/paid-on-call it falls under the NFPA 1720 standard. If neither staffing group reaches the 85% threshold then the authority having jurisdiction (AHJ) can choose which of the two standards best applies to their department. CAFD falls into this latter category and the
McGrath Consulting Group, Inc. Page 17
consultants’ recommendation is the AHJ strives to meet NFPA 1720 standard; however, they should not adopt either standard, only strive to meet as many of the standards as possible.
Occupational Safety and health Administration (OSHA) – mandatory All fire departments are mandated by OSHA paragraph 29 CFR 1910.134(g) (4) commonly referred to as “two-in/two-out” mandatory requirement for interior firefighting. Fire fighters operating in the interior of the structure must operate in a buddy system and maintain voice or visual contact with one another at all times. In addition, OSHA requires at least one team of two or more properly equipped and trained fire fighters are present outside the structure before any team(s) of fire fighters enters the structural fire.
Insurance Service Offices, Inc. (ISO) – non mandatory The ISO Public Protection Classification program is designed to help establish fire insurance premiums for residential and commercial properties based in part on a community’s fire protection services.
The revised ISO schedule continues to evaluate three major categories of fire suppression: fire department, emergency communications, and water supply. In addition, it includes a new Community Risk Reduction section that recognizes community efforts to reduce losses through fire prevention, public fire safety education, and fire investigation. The addition of the new risk reduction section represents a major shift in emphasis in the FSRS, giving incentives to communities that strive to reduce fire severity proactively through a structured program of fire prevention activities.
CAFD has three ISO class ratings: Class 4 – represents 67.66% of the district Class 6 –non-hydranted < 5 miles from a fire station Class 10 – non-hydranted > 5 miles from a fire station
McGrath Consulting Group, Inc. Page 18
Center for Public Safety Excellence (CPSE) – non mandatory CPSE accreditation is a structured process for documenting the levels of fire safety, prevention, fire safety education, suppression services currently provided, and for determining the future level of service the department should provide. CPSE accreditation asks the department to determine and document if its fire protection services are appropriate, adequate, and effective.
Although CPSE is the best instrument for measuring a department’s service level, CAFD is not encouraged to seek accreditation at this time; rather they should obtain the CPSE benchmarks and core competencies and strive to meet these standards.
Staffing At the heart of most studies is the future staffing methodology and its associated costs. The consultants have provided a recommended organization chart which utilizes career, paid-on-call, and paid-on-premise members. The foundation of the new staffing methodology is creating a team of firefighters/EMTs consisting of the three categories named above.
The career overtime issue and excessive callback should be addressed by augmenting the career employees with paid-on-call/paid-on-premise staff and having the trained paid-on-call staff perform the non-emergency medical transports.
The following employees should be added to the CAFD: Assistant Fire Chief – 2nd in command Administrative Assistant – full-time Career members – add one per shift (total of three) Paid-on-call – continue to recruit and address culture environment Paid-on-premise – augment with trained fire/EMS personnel on a 12 hour shift basis.
Assign the battalion chiefs to a permanent shift in which one employee per year/per shift changes shifts; however, the battalion chiefs remain with their assigned shift. Address the issues with the training/safety officer position.
McGrath Consulting Group, Inc. Page 19
Move all administrative staff into a new headquarters station in which the career personnel and administrative staff are housed in the same complex. Investigate if staffing an ambulance at Station #2 would be advantageous.
Human Resources The review of the human resources policies and procedures for the Cloquet Fire Department involved interviews with individuals associated with the City of Cloquet and the city manager in relation to the payroll and benefit practices performed by the city on behalf of the department; and extensive time spent with the fire chief to develop an understanding of current practices. The consultants also spent considerable time reviewing a number of documents provided by the department. There are many areas in which in the consultants have provided a review and recommendations. These include: Recruitment and hiring practices for volunteer/paid-on-call and full-time New employee orientation processes Performance management Promotions Discipline Personnel records and record retention
It is not uncommon in fire districts and/or private fire departments that the area of personnel is usually underserved. It is difficult to spread personnel responsibilities among various individuals who also have responsibilities in fire operations. Thus, the primary discussion and recommendation within this section is the need for an individual to serve in the capacity of fire administration administrative responsibilities. There have been discussions with the city to share an individual who is trained in the areas of personnel administration; and these efforts should be continued. With that said, there is a need for an individual to assist not only in personnel functions, but also administrative and clerical functions of the fire chief and command staff, including areas of insurance liabilities and bookkeeping. This individual can serve as a liaison between health insurance, payroll, and other personnel services and the employees of the department.
McGrath Consulting Group, Inc. Page 20
The other main area of discussion was the compensation of the members of the department. Through past negotiations and labor disputes when the department was a part of the city, the fire contract has a number of compensation policies that are non-traditional – such as the determination of the hourly rate by dividing by 2,756; and the rates of overtime provided. Some of these differences were established to bring parity with the police department. Since the consultants spend a great deal of time developing compensation structures, it is not uncommon to hear fire department personnel seeking parity with law enforcement; however, the work environment, skills, education, certifications, and training are very different from each other. A better comparison is to see the comparability of wages among similar fire departments – not other city departments.
The current wage scales were developed many years ago by Springsted Consulting. It is not uncommon that wage scales have a limited life span and need to be reviewed and updated regularly. Based upon an analysis of the compensation structure, overtime calculations, insufficient spread in ranks, and overtime use, it would behoove the department to have a compensation study conducted that would ensure comparability to similar fire department wages, clean up the schedule to reduce compression, as well as ensure alignment with other pay practices (certification pay, education pay, Kelly days, and overtime rates).
The remainder of the personnel sections provide insight into current practices (although some practices were in the midst of change during the consultant’s visit), and recommendations for future actions. Among the policy and procedural recommendations is the need for specific supervisory training to ensure that all those with the responsibilities of supervision understand employment law and how their actions can be a potential liability to the organization; the role of a supervisor; and how to function as a team in carrying out the administrative functions of the organization. There is no question as to their ability to function as a team at the fire scene, but it is in personnel and administration that many fire departments need assistance – Cloquet is no exception.
McGrath Consulting Group, Inc. Page 21
Finally, the consultant provided the district with a critique of its personnel manual and local 880 contract. The personnel manual was in draft form as the fire chief was in the process of updating, so hopefully, the suggestions will be of assistance. The comments to the contract are for discussion purposes only, as all changes will need to be completed through the negotiations process.
Public Safety Answering Point (PSAS aka. Dispatch) The Cloquet Area Fire District serves communities and unincorporated areas in two counties: Carlton and St. Louis; therefore, they communicate with two Public Safety Answering Points (PSAP). Carlton County PSAP would benefit from renovating the facility and ensuring that a minimum of two dispatchers would be on-duty at all times.
CAFD should implement a quality/assurance program with both PSAPs to review data and ensure that CAFD is receiving the data needed and ensure the data is accurate.
Facilities The three stations are not owned by the district. Station #1 is owned by the City of Cloquet, Station #2 is owned by Perch Lake Township, and Station #3 which houses the department’s administrative offices, classroom, and apparatus area is owned by the City of Scanlon. The CAFD Board leases each of these facilities.
Station #1 and Station #3 are 2.08 miles apart and should be consolidated into a new headquarters station. A consolidated headquarter station also means a consolidated workforce where both career, paid-on-call, and paid-on-premise would occupy the facility.
The new headquarters station would also house the fire department administration and would serve the district as the primary response facility. However, consideration to some minor renovations at Station #2 would allow for on-duty staffing at this facility as the need develops. In addition to the new headquarters facility, a storage facility for the large training vehicles and trailers should be built on the same property as the headquarters station.
McGrath Consulting Group, Inc. Page 22
All facilities should be equipped with a total capture emission exhaust system. In addition, all fire stations and storage building should be equipped with a fire suppression system (sprinklers) and fire alarm system which is monitored 24/7 by an outside source.
Apparatus All of the fire and EMS apparatus are owned by the CAFD. When Stations #1 and #3 are consolidated, a reassessment of the needed apparatus should occur. With combination staffing and staffing with paid-on-premise, the need for an ambulance located at Station #2 should be investigated.
The CAFD Board should adopt the apparatus replacement schedule as presented in this report. Funding can be handled in several ways but creating an apparatus replacement fund which draws interest can offset the cost of new apparatus when needed. This should include the ambulance rechassis program at the seven-year in-service mark. Assessing the benefits of partnering with the City of Cloquet Vehicle Maintenance Department after a 12 month trial period would be prudent. All new apparatus should be equipped with an engine hour meter.
Training There is considerable dissatisfaction with the current training program which stems from unclear expectations, insufficient oversight, lack of training calendar, lack of documentation, training hours recorded, lack of standardized lesson plans, and most challenging an interpersonal relationship between the head of the program and the rank and file.
The consultants recommend the training program should start afresh rather than attempting to restructure the current program. This restructuring should be accomplished through a taskforce appointed by the fire chief. The fire chief must clearly identify in writing his expectations and the battalion chiefs be held responsible for accomplishing those goals.
McGrath Consulting Group, Inc. Page 23
Career, paid-on-call, and paid-on-premise should train together whenever possible. All career shift personnel should be required to obtain 240 hours of fire training per year which does not include the mandated EMS recertification hours. All training records should be listed into a single record/data management software program. All officers should be required to attend and record a minimum of two hours per month of officers training.
Competency/proficiency testing should occur for all shift personnel twice a year and should be observed by the fire chief and training/safety officer. The goal of competency/proficiency is not punitive in nature, but rather carried out through a mentoring format.
Greater effort in the pre-fire planning program is needed and this data should be sent electronically to responding emergency apparatus.
Fire Prevention/Safety Education The fire department should be involved in fire inspections throughout the entire response district including tribal property. This program should be overseen by an individual titled fire marshal. Fire inspections and fire pre-plans can be conducted simultaneously. The utilization of the K-9 in fire investigations is highly supported.
Public safety education is a well-established and overseen program and should receive sufficient fiscal resources to continue.
Fiscal The CAFD Board should review the department’s financial policies and procedures paying attention to the desired level of net assets. The department’s health insurance program must be monitored to ensure it is compliance with the Affordable Care Act ensuring it falls under the 2018 “Cadillac Plan Tax”.
The board seems to perform their due diligence in monitoring the fiscal activities of the administration.
McGrath Consulting Group, Inc. Page 24
Introduction McGrath Consulting Group, Inc. was commissioned by the Cloquet Area Fire District Board of Directors to conduct an operational assessment (audit) of Cloquet Area Fire District (CAFD). The purpose of this study is to present to the leadership an independent, non-biased assessment of the functionality and preparedness, as well as identify areas of excellence within the fire district and also to explore opportunities for improvement.
As part of the study the consulting team conducted a series of interviews (small groups or individually) with the following:
Cloquet Area Fire District Board members Cloquet Area Fire District:
o Fire Chief o Division Chief-Training o Battalion Chiefs (3) o Career Shift Officers o Volunteer Officers o Public Education Specialist o Career Firefighters o Paid-on-Call Firefighters o City of Cloquet Vehicle Maintenance Supervisor o IAFF Local 880 Executive Board o Project Medical Director o Former Fire Chief o B KV Architects (city planning) Cloquet City Administrator Carlton Fire Department – Fire Chief Esko Fire Department – Fire Chief & Assistant Fire Chief Carlton County Public Safety Answering Point (Dispatch ) – Chief Deputy
McGrath Consulting Group, Inc. Page 25
St. Louis County Public Safety Answering Point (Dispatch ) – Communication Supervisor
It is important for the reader to understand that a study of this nature is a snapshot in time, and numbers of employees, vehicles, and policies are always fluid; therefore, the consultants attempted to be consistent with the data/numbers when possible.
Any report of this nature is only as good as the data and information provided to the consulting team. For a study of this nature, a significant amount of documentations were required. Every effort was made to obtain accurate data and examine the issues from a non-prejudicial perspective. Therefore, the recommendations made within this report are based on quantitative and qualitative facts such as; data provided by the district officials, district employees, interviews, observations, standards, research and sources that are associated with the topic, and the experience of the consultants – who have spent years in either fire and EMS, emergency services, or an aspect related to that endeavor. Appendix A lists the data that was requested by the consulting team prior the first site visit.
Throughout this report the term volunteer and paid-on-call will be used interchangeably. Volunteers receive no compensation for their service. Although small in comparison to the salary and benefits of a full-time career position, volunteers and paid-on-call members are not free and require protective clothing/equipment, training, and the tools to perform their tasks.
Therefore, technically no member of the CAFD is a volunteer since they do receive some form of compensation so they are technically paid-on-call. The dedication, pride, and call to duty does not change because of a small token of compensation; rather, both groups serve their community out of a willingness to do so.
It is becoming more common in the fire/EMS service for utilizing paid-on-premise (POP) personnel. A paid-on-premise individual is an employee who is hired for a given amount of hours (e.g., ½ shift) and is on duty in the station. Paid-on-premise personnel receive an hourly
McGrath Consulting Group, Inc. Page 26
rate or stipend for their service. POP positions can be filled by volunteer, paid-on-call, and either members of Cloquet or other area fire/EMS providers; they often are career members from other departments who are certified and work the position as a part-time job.
Six consultants participated in the study, each addressed topics that were appropriate to their specific skills and expertise. Dr. Tim McGrath, CEO – Project Manager – 33 years fire/EMS (paramedic) experience Chief Robert Wilcox – Fire/EMS consultant – 35 years fire/EMS experience Chief Mike Stried – Fire/EMS consultant – 37 years fire/EMS (paramedic) experience Battalion Chief Larry Pieniazek – Fire/EMS consultant – 33 years fire/EMS experience Dr. Victoria McGrath, CEO McGrath Human Resources Group – Human Resources – 29 years public and private sector HR experience Mr. Robert Harrison – Fiscal Analysis/Administrative Leadership
In addition to interviews, data analysis, review of previous reports, contracts, state certifications, and department policy review, the consulting team conducted a Strength, Weakness, Opportunity, and Threat (SWOT) analysis with board members, and department leadership. The results of the SWOT analysis will be included within this report.
The contact for the consulting team was Board Member Mr. Bob DeCaigny – Chairman of the CAFD. The consulting team wishes to thank Mr. DeCaigny for ensuring the consulting team would be unrestricted in their assessment efforts, as well as Fire Chief Kevin Schroeder and the staff who provided vast amounts of data and scheduled stakeholder interviews.
Although the perspectives of those interviewed were diverse, the consultants at no time were restricted or influenced by any CAFD member, CAFD Board Member, or other elected and/or appointed official or their agent. Rather, the consultants took a non-biased professional assessment of the CAFD Board and CAFD organization, which has produced these study findings.
McGrath Consulting Group, Inc. Page 27
The report is divided into major sections, each of which will begin on a new page. Each section contains a discussion and describes the CAFD structure and CAFD practices, policies, and/or data – as documented during the time of the study. Each section (when applicable) concludes with the consultants’ recommendation(s). The report concludes with a summary – by section – of all recommendations/opportunities.
McGrath Consulting Group, Inc. Page 28
Culture Observations All organizations develop a culture, and that culture easily becomes stronger than any single individual within an organization. Organizational cultures are created, maintained, or transformed by people. However, to change a culture, change needs to occur with the individuals that make up the organization, which is far more difficult than it may seem. In short, culture is the personality of the organization.
Culture finds its roots in shared basic assumptions: invented, discovered, perceived, or tangible by a given group as it learns to adapt within its environment. In reality, culture is a specific collection of values and norms that are shared by people within the organization. Culture is hard to define, but those within the organization understand it and recognize quickly when someone or something attempts to change it. Culture portrays itself in appearance, attitude, behavior, and performance. Many argue that performance is not impacted by appearance, attitude, or behavior, but in reality, the power of culture plays a significant role in defining performance standards.
This is a difficult section to write, but must be written. Not because the consultants feel that the delivery of services by the CAFD is inadequate, that is quite to the contrary. It is difficult to write because it’s qualitative in nature and is easily observed by those outside the organization; unfortunately, for those within the organization it’s just the way it is and has been accepted by everyone from the newest member to the top leadership. Unless the culture is addressed in the following two areas, the CAFD will not improve and it is impossible to stay the same without in reality getting worse.
Strengths, Weaknesses, Opportunities, Threats Analysis (SWOT) The consultants conducted a SWOT analysis with three members of the CAFD board, three battalion chiefs, and the fire chief for a total of seven participants.
The SWOT analysis helps organizations assess issues within and outside the organization. The process helps an organization develop a strong business strategy. A SWOT analysis is an organized list of your business’s greatest strengths, weaknesses, opportunities, and threats.
McGrath Consulting Group, Inc. Page 29
Strengths and weaknesses are internal to the department – you can change them over time but will require a strong leadership and commitment. Opportunities and threats are external – they represent the environment outside your organization whether you like it or not; you can’t change them.
Each participant lists the items they feel are strengths. All items mentioned are listed on a master sheet in the front of the room. When all the strengths of the department are listed each member can vote on their priority as follows:
Table 1: SWOT Voting Points Voting Points Description 3 Most significant (important) item 2 On the next significant 1 Third most significant
After completing the strengths of the department the same procedure is followed for the weaknesses, opportunities, and threats. Therefore, with seven participants there would be a total of 42 votes divided amongst the four categories.
The table below illustrates the results of the CAFD SWOT exercise:
Table 2: CAFD SWOT Analysis Findings Internal Strengths Weaknesses 21 Personnel 12 Accountability 4 Training 6 Training 3 Commitment 6 Facilities 2 Ability to Adapt to Change 4 Chief Administrative Load 2 Combination Workforce 3 Participation 2 Community Support 3 Staffing Level 2 Knowledge Base 2 Face-time /Chief 2 Response Times 2 Station #2 Resources/Participation 2 Structure 2 Cost of Service vs. Tax Base 1 Equipment/Apparatus 1 Carlton County Dispatch
McGrath Consulting Group, Inc. Page 30
Internal Strengths Weaknesses 1 Growth Opportunity 1 Working Relationship Between Board/Mgmt. Team 0 Arson/K9 0 Callback 0 Cooperation 0 Inadequate Training Space 0 Diversity of Board Members 0 Leadership 0 Experience 0 Expectations Unequal to Results 0 Follow Through 0 Medical Director Leadership 0 Innovation 0 Micro-Management 0 Levy Authority 0 Organizational Structure 0 Level of Service 0 Policies 0 Local Press Coverage 0 POC Assimilation 0 Open Minded 0 Workload 0 perception 0 Record Keeping 0 Statewide Exposure 42 Total Votes 42 Total Votes
External Opportunities Threats
13 Growth and Recruitment 20 Increased Service Demands 10 Middleton, W.I Fire Dept. 9 Cost of Operations 7 Public Education 4 Board Member Changes 5 Regional training 4 Ourselves 3 Community Paramedics 3 Medicare/Medicaid/Financial 3 Statewide Focus on Consolidation 1 Dissatisfied Partner Communities 1 Fond-du-Lac 1 lack of Succession Planning 0 Cooperative Purchasing 0 Changing Technology 0 Grant Writing 0 Community Paramedics 0 New Member Process 0 Demographics Density Issues 0 Drug Corridor 0 Oil Shipments/Balkan 42 Total Votes 42 Total Votes
CAFD Perspective of Importance The highest votes for the strengths of the CAFD was “Personnel” = 21 votes Staffing levels was the sixth highest identified weakness of the CAFD was “Staffing Levels” = 3 votes. Also listed in the weakness category was “paid-on-call assimilation” = zero votes
McGrath Consulting Group, Inc. Page 31
Also identified as a weakness was “Callback” = zero votes Identified in opportunities was “New Member Process” = zero votes Identified in threats was “Increased Service Demands” = 20 votes (highest in category)
What is most significant with the above findings is the department identified issues in all four categories that related to the same general topic – increased service demands – need for additional staffing.
Yet the process did not identify the root cure to eliminate the “elephant” in the organization.
“The Most Significant Challenge for the CAFD” CAFD provides outstanding services with a group of highly qualified professional career and paid-on-call (POC) members. Unfortunately, it was obvious that the career staff and the paid-on- call staff do not work together in any reasonable fashion. The career personnel assigned to Station #1 do not rely on either of the other two fire stations for any type of response regardless of time of day or day of week. This is a serious problem and one that could have detrimental consequences to the consolidation itself. It is also an issue that needs to be addressed immediately by the department leadership.
The interpersonal relationships within the department have transcended themselves to other local service providers and fair or unfair, the perception is that the CAFD is more elite and presents themselves with an air of superiority; in most cases someone’s perception equals their reality. The feelings described herein are directed toward the career members of the department which includes a rank as high as the Battalion Chief. It is unfair and an injustice to paint a picture that all career members are part of the negative culture described, but the stakeholders and observers outside the department were quick to classify the entire department in that manner.
Without a doubt the CAFD is perceived as a threat to some outsiders because they are different, they have more resources due to the consolidation, and they are the big department in the area. However, no department is large enough to believe they have the needed resources to handle all
McGrath Consulting Group, Inc. Page 32
of the events they will face. No one works better on the emergency scene than the fire department who in fact wrote the book on incident command utilized by the Federal Emergency Management Agency (FEMA). Unfortunately, the same cannot be said for relationships for the other 94% of the time when not on an emergency situation.
Perhaps the data provided for mutual aid requests, both given and received, speaks of the lack of team building with other service providers. During the three-year study period, the department was only requested to respond to another service provider seven times. Most of the other departments are volunteer, a few are combination, but one would assume that faced with a large event, they would reach out to the big neighbor who has on-duty personnel who can respond immediately. Are seven calls in three years a coincidence or affirmation of the subject addressed above?
Consultants have the advantage of standing on the balcony and looking down at the operation from a global perspective without the history of past wrongs or personal events. Not addressing the most major issue (above material) facing this organization would be ignoring the “elephant in the room”.
Figure 1: Most Significant Challenge for CAFD
McGrath Consulting Group, Inc. Page 33
“The Most Significant Opportunity for the CAFD”
The current fire chief came up through the ranks and was appointed to fire chief in March 2011. He has many attributes and is very well liked by the rank and file including both career and paid- on-premise. He is multi-talented inasmuch as he does everything from making copies to incident command at large emergencies.
The term that best described him by those interviewed was “he is a nice guy” and “he really tries to treat people with dignity and caring”. During the interviews with board members, career, and paid-on-call, the interviewee was asked to grade (A to F) the chief: the composite score from the board was an A; the composite score from the membership was an A-. This is an impressive vote of confidence for a chief who has been in the position for three years.
These are all great attributes, but the one theme that was usually added was “but” he doesn’t hold employees accountable and seems reluctant to discipline. Some people take advantage of him because he is a nice guy. There was a general fear that although he is well liked, he perhaps is not as respected now as he has been in the past. Those interviewed felt he needed to hold people accountable and consistently enforce rules and policies.
The membership was more aware of this situation than the fire board; this is to be expected inasmuch as the board only interacts with the chief on a monthly basis. The consultants are very supportive of the chief and believe he is the right person for the job; but he needs a second-in- command. The individual filling this position should have complementary skills to create a stronger leadership team.
Any organization can improve, and CAFD is no exception. However, the overall analysis of the organization reinforces that this premier organization offering highly skilled fire, rescue and emergency medical services, does need serious self-examination to move from good to great.
McGrath Consulting Group, Inc. Page 34
Recommendation – Department Culture The board has expressed desire to expand the consolidation and create greater partnerships with their neighbors; however, they seem completely oblivious to the department culture that not only prohibits additional consolidation but threatens the very existence of the current one. This issue needs to be addressed head-on and immediately. Priority 1
The CAFD board should fill the position of deputy fire chief within the next six months. Priority 2.
McGrath Consulting Group, Inc. Page 35
Department Overview The Cloquet Area Fire District (CAFD) is an excellent model of successful consolidation of area emergency service providers. In 1884 members of the private fire brigades for the multiple lumber operations in Cloquet came together and formed the first public fire department in Cloquet; this volunteer group provided fire suppression service until 1988.
In March 1888 the Cloquet Village Council chartered the Cloquet Fire Company No.1 consisting of six career members and a fire chief. In 1903 the Village of Cloquet incorporated into the City of Cloquet and the Cloquet Fire Company No. 1 became the Cloquet Fire Department. The Cloquet Fire Department operated as a fully-paid (career only) department until the CAFD was formed.
In 1945 a local business man donated an ambulance to the fire department and the department became a pioneer in fire-based emergency medical services (EMS). Today the majority of career members hold the highest level of pre-hospital care being paramedics. In 1946 the firefighters/EMTs organized into the International Association of Firefighters (IAFF Local 880).
In 2006, discussions among some Carlton County Fire Departments were undertaken on the possibility of the sharing of emergency services. By 2008, it was determined that there were in fact some governing bodies interested in consolidating the administration of their fire departments into a joint governing board, thereby creating the Cloquet Area Fire District on January 1, 2009. At that time the CAFD became a combination department with staffing of career and volunteers from Perch Lake Fire Department providing fire suppression, advanced life support (ALS) paramedic services to the City of Cloquet and Perch Lake Township. In 2011 the City of Scanlon Fire Department consolidated their resources into the CAFD.
Also at that time a professional services contract for fire protection was signed with the Fond du Lac Band of Lake Superior Chippewa covering the tribal properties and its residents. Emergency medical coverage is also included in the contract with the exception of the tribal-
McGrath Consulting Group, Inc. Page 36
owned Black Bear Casino where the Carlton Fire Department provides EMS coverage; these response areas are set by the State of Minnesota.
Mission Statement The fire district’s mission statement aligns with the concept of consolidated fire/EMS emergency services delivery as illustrated below:
“The mission of the Cloquet Area Fire District is to provide unified fire protection, rescue, and emergency medical services to enhance the safety and improve the quality of life within the communities we serve.”
CAFD Organization Chart As with most combination fire departments, the number of employees was somewhat fluid with the retirement of the paid-on-call coordinator. The most accurate number of members at the time of the study was 59 as illustrated in the figure below:
Figure 2: CAFD Organization Chart at Time of Study
McGrath Consulting Group, Inc. Page 37
The fire district board consists of eight voting and one non-voting member as illustrated in the table below:
Table 3: CAFD Board Composition Representing Members City of Cloquet 2 Perch Lake Township 2 City of Scanlon 1 Carlton County 1 St. Louis County 1 At Large 1 Recording Secretary 1
Board members are appointed or reappointed by the member community they represent on a staggered three-year term. The board annually elects from among its voting members; all voting members have an equal vote: chair, vice-chair, and treasurer. A simple majority of the voting members constitutes a quorum and meetings are scheduled on a monthly basis.
Protection Area The CAFD covers approximately 72 square miles, with an additional 144 square miles included in the Fond du Lac contract (total 216 square miles). The contract with the Fond du Lac Tribal area includes a wide variety of occupancies including residential, commercial, educational, and rural with vast wilderness areas.
The City of Cloquet has a residential population of approximately 12,124 residents, and is comprised with a mix of residential, commercial, educational, industrial, high rise occupancies, a regional hospital campus, as well as a state college campus. The City of Scanlon’s population of 985, while primarily residential, does include some commercial and business occupancies as well. Perch Lake Township’s population of 1,000 is predominately rural in nature. The department indicated they protect 22,000 which includes the total fire and EMS areas plus tribal property.
McGrath Consulting Group, Inc. Page 38
The department provides a full range of fire protection, EMS and rescue services on a daily basis. In addition to “routine” firefighting and EMS responses, CAFD also provides technical rescue including: high angle, structural collapse, hazardous materials, water rescue, auto extrication, and public education services. A portion of the EMS services provided by CAFD, include emergency and non-emergency transport/transfer of patients from the local hospital located in Cloquet to outlying hospitals located in Duluth and other cities as necessary to provide patients with a higher or specialized level of care.
Currently, CAFD has been granted an ISO classification of 4 for its urban-hydranted areas, while ISO has issued a classification of 6/10 for non-hydranted/rural areas.
Staffing The Cloquet Area Fire District provides its fire protection and EMS coverage through the utilization of three fire stations. Station #1 houses the full-time line staff consisting of 21 personnel who provide 24 hour, seven days per week coverage. Station #2 and Station #3 both have volunteer staff who respond with their respective station to man the apparatus. Additionally, two part-time staff, one full-time fire chief, and one training division chief, are housed within the administrative offices headquarters in Scanlon. These personnel work a traditional 40-hour week; however, they all might be on-call as needed.
As noted Station #1 houses all the full-time line staff, consisting of 3 battalion chiefs, 3 captains, 3 fire equipment operators, and 12 Firefighters/EMT. Out of the personnel listed above, 20 are certified paramedics. On any given day, the numbers of full-time staff on duty range from a maximum of seven, with four being the minimum. It should be noted that the fire chief and the training division chief are certified paramedics as well bringing the number to 22 members of CAFD who hold an active paramedic license.
At the time of the study, there were a total of 33 paid-on-call personnel assigned to the outlying stations (Stations #2 & #3). Assigned to Station #2 are 3 captains, 1 fire equipment operator, 8 firefighters/first responders, and 1 first responder for a total of 13. Assigned to Station #3 are 3
McGrath Consulting Group, Inc. Page 39
captains, 1 fire equipment operator, and 16 firefighters/first responders for a total of 20 personnel. Additionally, there are 3 part-time employees paid by the CAFD which includes 1 public education coordinator, 1 assistant training officer, and 1 recording secretary utilized for board meetings.
Station #1 full-time personnel respond to emergency and non-emergency calls in various ways dependent on the actual number of personnel on duty. Those numbers will vary from day-to-day based on vacation/scheduled time off, sick days, or other approved reasons. Station #1 full-time personnel respond to all calls throughout the district with the other stations being dispatched for calls within their designated response area. In reviewing the data, as well as conducting interviews, it was found that there is a very limited response from outlying Station #2 and Station #3 dependent on time of day.
As discussed in the introduction section, of significant concern is the relationship between the full-time (career) and the paid-on-call members. There have been various attempts, including policy changes/reviews, ride-along (duty crew) programs, etc. to foster better working relationships, or a more cohesive working atmosphere between career and paid-on-call members. None of these programs could be classified as a success and the ride-along program has experienced another policy revision and has been reactivated. The chief indicated there were approximately 12 ride-alongs since May 2014. This is most unfortunate for a number of reasons but what is most disconcerting is these members could easily be working side-by-side at an emergency were the safety of those members is dependent on the functionality of the team.
EMS There are currently four Advance Life Support (ALS) ambulances housed at Station #1. Two of the on-duty staff respond on any type of EMS call for service. They are backed up routinely by the battalion chief, depending on the incident’s severity. Again, the number of personnel on duty for any particular day may vary; therefore, the call-back of off-duty career personnel (not paid- on-call) often occurs on a single ambulance call.
McGrath Consulting Group, Inc. Page 40
There are no provisions within the CAFD for utilizing any of the volunteer (paid-on-call) members either in covering vacant positions while the career members are handling a call, augmenting the on-duty shift to minimize off-duty callback, or handing the non-emergency patient transports. Some paid-on-call members are certified as EMTs and their only involvement in the department is acting as first responders (lower level of EMS care). Consideration must be given to the fact that response to areas of the district can be lengthy such as the Perch Lake Township area, which currently has limited response by the paid-on-call members.
The consultants will address a new organization chart and staffing philosophy in the staffing section of this report which will involve career/paid-on-call work teams.
McGrath Consulting Group, Inc. Page 41
Governance In 2008, with interest, input, and approval of their respective residents and constituency, the three municipalities created a Joint Powers Agreement on January 1, 2009; although the actual legislation came into effect on January 1, 2010. Through this approved legislation, a taxing authority was created to provide funding for the operation of the district.
The original district partnership was made up of the City of Cloquet and Perch Lake Township. Two years later on January 1, 2011, the City of Scanlon joined the district. Representatives from each of the member jurisdictions were appointed to the district fire board to govern and oversee the districts operation.
As previously noted the Cloquet Area Fire District is currently governed by an eight member board representing the various governmental entities which are participating members of the district. Those entities are illustrated in the table below:
Table 4: Board Composition – CAFD Representing Members City of Cloquet 2 Perch Lake Township 2 City of Scanlon 1 Carlton County 1 St. Louis County 1 At Large 1 Recording Secretary 1
Incorporating the assets and manpower of the Cloquet, Perch Lake Township, and City of Scanlon fire departments resulted in significant challenges and opportunities in all three fire departments. The City of Cloquet had been a full-time, career department and affiliated with the International Association of Firefighters as Local 880. The Perch Lake and City of Scanlon fire departments had been run as volunteer (paid-on-call) departments.
The consolidation plan included the maintaining of each department’s membership and meshing the career and volunteer members into a unified service team. Cloquet was a full career McGrath Consulting Group, Inc. Page 42
department and had little interaction with volunteers. Conversely, the volunteer departments had total autonomy which no longer was the case.
“The first rule of leadership is to be present”. Leadership did a good job and the novelty of the new department shadowed all those issues that were to be addressed at a later time – to become just that – issues not addressed. The existing officer ranks within the departments were for the most part maintained, although some duties, job titles, responsibilities, and operational functions were diversified. Apparatus and equipment placement was evaluated and redistributed as necessary.
In 2011 a new chief was appointed by the board from within the department. By now the “left behind issues” were increasingly becoming more challenging. The battalion chiefs worked hard in their new roles but the new roles were never defined and no formal training was given. This perhaps explained why it was difficult to determine the difference between the daily activities of the captains and battalion chiefs during site visits.
The chief duties included everything from secretary to strategic planner. Having a single fire chief managing and coordinating fire department operations reportedly worked well in 2009 in the districts infancy, but the consultants question if that is still sufficient in 2014?
A division chief of training and safety was added to address the importance of training and to consolidate the workforce under a single unified team. However, missing was unification of the plan on how this was to occur. The training chief believes his job was similar to the chief’s in developing the program and delegating it to the shift officers (battalion chiefs and captains) who would implement the program. However, the rank and file members believe that the training chief would now be conducting the major training and that the needs of the career members were very different from those of the paid-on-call.
An even larger picture surfaces when the current fire station configuration is no longer adequate due to age, location, size, or other factors. All of these issues must be dealt with in a well
McGrath Consulting Group, Inc. Page 43
thought out process and planning for future needs. These needs were met by renting space from the City of Scanlon city hall and temporarily placing the chief, training division chief and public education specialist (part-time) out of sight of the only staffed station. Remember the first rule of leadership “is to be present”.
Cloquet Area Fire District Board The consultants were perplexed after interviewing the majority of the district board members. They, of course, were a very diverse group which brought considerable expertise in performing their role. However, what struck the consultants was that it was difficult to delineate were the board stopped and the chief began. At first it appeared the board was micro-managing. However, that wasn’t the case; rather, the department was managed by committee. The chief was told what meetings to go to, what issues to address first, and it appeared that the chief accepted that role and in the opinion of the consultants did not present himself as the leader of the department, rather the manager.
Responsibilities of a Fire Board The consultants understand the district has in place the CAFD bylaws from July 17, 2013 and therefore should function under those guidelines. The listing below of the board’s responsibilities is a generic overview of areas most often associated with board appropriate actions.
Understands the Role of the Board and Fire Chief The board’s responsibility is to create and ensure policies are being followed; not to dictate how the fire chief operates. Board policies involve determining what levels of service the department will provide (i.e., fire suppression, fire prevention, rescue, etc.). The fire chief should determine the policies of operations as to how the department will meet such direction of the board, and also be held accountable for meeting that direction.
McGrath Consulting Group, Inc. Page 44
Taxpayers Liaison Each board member is the communication conduit to the public who provides the fiscal resources for the fire district. Their responsibility is to improve the relationship between the citizens, fire department and the board itself. They are to resolve issues that were not resolved by the fire chief. They must ensure that their actions are for the general public’s good-not their own interests. They should be the cheering squad for the department and aid in supporting and “selling” their endeavors.
Report to the Three Governing Bodies The minutes of each board meeting should be distributed to the respective communities. The board members are the direct intermediaries for the governing officials of each community. They should be the conduit providing clear two-way communication of the activities of the district to the respective community as well as provide information to the district from the community.
Appointment of the Fire Chief The fire chief should be appointed by the fire board to serve at their discretion, until removed by a 2/3 vote of the fire board members for cause.
Appointment of the Assistant Chief Establishing the number two position (assistant chief) in the CAFD is very much needed and recommended by the consultants to occur within one year.
The assistant chief should be appointed by the fire chief to serve at the discretion of the fire chief. The fire board should approve this appointment by a simple majority vote. The purpose of allowing the fire chief to appoint his/her second in command allows the chief to establish a foundation for his/her leadership team.
McGrath Consulting Group, Inc. Page 45
Approval of Elected Fire Department Officers All other officers (including the training officers) should be appointed by the fire chief and approved by the fire board.
Hiring of New Department Members The fire board should advertise for positions, collect resumes, interview the candidates, rank the candidates from top to bottom, and establish a policy of how candidates will be chosen from that list. The list should have a life of two years at which time retesting and ranking occurs.
Monitor Fire Department Budget Although the fire board approves the fire department budget, there is a significant lack of accountability as to the state of all budgetary items including revenue generated by the department to the board. This type of information would be provided to the board in the form of a spreadsheet on a monthly basis. The fire chief and the Board should work closely in this accountability process and should maintain an ongoing open line of communication regarding the budget.
Performance Review of the Command Staff (Chief) It is essential that the fire board has a formal annual evaluation of the performance of the chief. Also, at that time, the board should define their expectations (in writing) for the next fiscal year as well as address the progress made during the current budget year. The fire chief should evaluate the assistant chief annually and present that evaluation to the board for discussion. The assistant chief should evaluate each officer holding a rank below deputy chief. All evaluations conducted by the assistant chief shall be submitted to the fire chief.
Oversee all Department Fiscal Activities The board is responsible for reviewing monthly activity reports of all matters that involve the expenditure or revenue generation by the department. The board should have approval of all expenditures above a specified amount.
McGrath Consulting Group, Inc. Page 46
Capital Planning The board should develop and adopt a strategic plan that outlines the future vision for the department and a master plan which incorporates future capital expenditures such as apparatus replacement programs. This knowledge is essential in determining future budget implications. Once established, the master plan and capital expenditures should be reviewed and updated annually. The board should continue to utilize the expertise of the department’s leadership team in the process of capital planning.
Set Department Goals in Conjunction with the Chief The key word here is with not for the fire chief. The final decision is the boards, but setting departmental goals must involve the open and honest discussion with the fire chief. Once established, the chief must fulfill, implement, or carry out the board’s directives.
Goals should be: Specific – define exactly what is to be expected
Measurable - a feedback system to indicate progress and accomplishment of the goal
Attainable – ensure the fire chief has the needed resources to accomplish the goal
Relevant – a set priority of importance to the delivery of quality, cost-effective services
Time Frame – a method to communicate progress and a well-defined outcome as to when the goal is to completed
Ensure Open and Honest Communication The board must ensure they are sending a consistent message and clear direction to the chief. Correspondence should be in writing and issues brought to them by department members should not be addressed until that member has spoken to their immediate supervisor following the proper chain of command. An exception to this is where the matter involves an immediate supervisor.
McGrath Consulting Group, Inc. Page 47
Recommendations – Governance A great fire department cannot be managed by a committee. The board of directors needs to allow the chief to be the leader of the department. To accomplish this they need to clearly define their expectation in writing and hold the chief accountable for accomplishing those goals. Priority 1
The need for a second-in-command is essential. This individual should possess strengths in areas of in which the chief attributes are not the strongest. Although the position should be open to both internal and external candidates the department would most likely benefit from an external experienced candidate. Priority 2
McGrath Consulting Group, Inc. Page 48
Emergency Activities The prime function of a fire department is to respond to emergencies. Although this activity only takes a small percentage of the department’s total time, its state of readiness must always be at a maximum. The challenge for fire/EMS leadership is to identify the need for resources that will provide the highest level of service, safety for those who receive and provide that service, and justify the fiscal resources needed. Fire chiefs and department supervisors should daily utilize categories of data for a variety of leadership/management functions, including but not limited to: Fiscal management Staffing Resource deployment Budgeting Purchasing Strategic planning Program development/implementation Program oversight/assessment Assuring competency Assuring cost-effective/efficient services Communication with governing board(s)
Leadership can quantify the above objectives through good data. The International Association of Fire Chiefs (IAFC) defines good data as data that meets three components: Good Data is Relevant – you are collecting information on the things that matter, like response times and number of calls for service.
Good Data is Accurate – your processes for data collection must be consistent and trustworthy.
Good Data is Reliable – a measurement from one company is equivalent to the same measurement from another company. You don’t have to “adjust your data to accommodate known distortions”.
Source: International Association of Fire Chiefs: Weathering the Economic Storm, December 2008
Cloquet Data Challenges What was an unexpected finding of the department’s emergency response data were the numerous data conflicts. These issues included but not limited to: McGrath Consulting Group, Inc. Page 49
Annual call totals published exceed the actual emergency responses. o Multiple ambulances respond to the same incident, they are recorded as separate incidents.
o If multiple units respond (e.g., vehicle accident – engine and ambulance) the single incident is recorded as both a fire and ambulance call.
The department utilizes ImageTrend™ as its data management system. The State of Minnesota provided two separate data/record management software programs (ImageTrend™). These two independent data/record management software programs can be connected through a series of bridges commonly referred to as “Fire Bridge”.
Cloquet Area Fire Company purchase a program called “Field Bridge” which is a mobile EMS software program to interface with the ImageTrend™ EMS modular. o It appears that there is a misconception that ImageTrend™ - Fire Bridge is merging the two data/record management systems into all areas that leadership normally queries in the management of the fire department: . Simultaneous incidents . Incidents by time of day . Incidents by day of the week . Incidents by month . Incidents distribution by district . Incidents distribution by shift . Mutual aid/automatic aid
o In 2013 the fire department stopped entering EMS calls into the NFIRS program thereby greatly impacting the ability for accurate response data.
o The individual queries both in the fire and EMS ImageTrend™ data/record management systems provide total call numbers in contradiction with other data provide for the same type of query.
Some of the data fields requested were either provided as fire only or EMS only but their total combined numbers far exceeded the department’s annual total calls. Or the data requested was not provided or obtainable; therefore, the data utilized might be from the department’s annual reports if available.
Therefore, throughout this report the number of total incidents in a particular field of query, might conflict when those incident totals are queried in another field. This will be most obvious during discussion of “Incident Trends”.
McGrath Consulting Group, Inc. Page 50
Although at the time of the study the fire department data did not meet the International Fire Chiefs definition of “good data”, the process did identify opportunities to implement changes in the software data management system for that future data not only meets their criteria but is a better management resource for the department administration. The addition of an administrative assistant should allow the fire chief more time to concentrate on the issues that most affect the organization.
Ten-Year Emergency Activity Totals The department provided call totals for the last ten years in which they manually went through the total incidents and attempted to remove any incidents that were duplicates as explained in the previous section. Therefore, the table and figure below should represent a fairly accurate record of total incidents over the last ten years.
Figure 3: Ten-Year Total Emergency Activities
3,000
2,500
2,000
1,500
1,000
500
0
-500 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 Total Calls 1,784 1,920 2,066 2,165 1,982 2,046 2,188 2,195 2,260 2,634 % Change 7.62% 7.60% 4.79% -8.45% 3.23% 6.94% 0.32% 2.96% 16.55%
McGrath Consulting Group, Inc. Page 51
Figure 4: Ten-Year Percent Change in Call Totals 20.00%
15.00%
10.00%
5.00%
0.00%
-5.00%
-10.00% 2005 2006 2007 2008 2009 2010 2011 2012 2013 % +/- 7.62% 7.60% 4.79% -8.45% 3.23% 6.94% 0.32% 2.96% 16.55%
Significant of Ten-Year Increase In the past ten years the Cloquet Area Fire District emergency incidents increased by 47.65%. However, this hardly accurately portrays the changes that have occurred within the same time period. In 2009 the City of Cloquet, Township of Perch Lake, and Township of Scanlon consolidated into a fire district adding in 2009 Station #2 – Perch Lake and in 2010 Station #3. In both cases the consolidated department absorbed the apparatus, equipment and staff at the time of the consolidation.
The rank of battalion chief was created to act as shift commanders for each shift; this was a title change and did not increase the career staffing level which has only increased by a single individual – division chief of training & safety. No positions have been added to the fire department administration team. Apparatus has been decreased by two units since 2004 with the removal of one engine and one tender.
Breakdown of EMS and Fire Call Totals The consultants categorized the total emergency responses into two categories: fire and EMS. This is a common practice utilized by most fire departments to obtain the percentage of resources needed for both services.
McGrath Consulting Group, Inc. Page 52
Nationally, EMS accounts for slightly over 70% of all fire department activities, which is an impressive percentage because only 62% of fire departments provide EMS in North America (Source: Fire Chief Magazine; Fire Service –Based EMS Made Easier; July 2012). The table and figure below illustrates the three-year call totals divided into fire and EMS and their corresponding percentage to total calls for the Cloquet Area Fire Company; 85.57% are EMS.
Table 5: Breakdown Fire / EMS Calls Cloquet Calls 2011 2012 2013 3 Yr. Total Fire Calls 336 334 353 1,023 % of Total 15.31% 14.78% 13.40% 14.43% EMS Calls 1,859 1,926 2,281 6,066 % of Total 84.69% 85.22% 86.60% 85.57% Total Calls 2,195 2,260 2,634 7,089 % Change 2.96% 16.55% 100%
Figure 5: Three-Year Averages Fire / EMS Fire Calls, 14.43%
EMS Calls, 85.57%
Incident by Nature Under state law, Minnesota fire departments are required to report all fire/EMS incidents to the National Fire Incident Reporting System (NFIRS) program under authority of the United States Fire Administration (USFA). NFIRS categorizes incident types into nine categories with each category having a series number with multiple sub-categories under each main series number.
McGrath Consulting Group, Inc. Page 53
The USFA collects and analyzes NFIRS data from participating states in order to provide a legal record of fact, assist fire department administration in evaluating its fire and EMS effectiveness, and to collect data for use at the state and national levels.
The following table and figure reflects the 2011-2013 emergency activities of the Cloquet Area Fire District utilizing the NFIRS series categories:
Table 6: Cloquet NFIRS Categories 2011 - 2013 NFIRS 2011 2012 2013 % of Total 100 Fire 44 33 38 1.62% 200 Overpressure//Rupture/Explosion 4 3 6 0.18% 300 Rescue/EMS 1,859 1,926 2,281 85.57% 400 Hazardous Condition 40 52 41 1.88% 500 Service Call 85 60 94 3.37% 600 Good Intent 63 26 49 1.95% 700 False Alarm/False Call 99 158 122 5.35% 800 Severe Weather 0 2 0 0.03% 900 Special Incident 1 0 3 0.06% Total 2,195 2,260 2,634 100%
Figure 6: Cloquet NFIRS Categories – Three-Year Study Period
False Alarm/False Call, 5.35% Severe Weather, 0.03% Special Incident, 0.06% Fire, 1.62% Good Intent, 1.95%
Service Call, 3.37% Overpressure//Rupture /Explosion, 0.18% Hazardous Condition, 1.88%
Rescue/EMS, 85.57%
McGrath Consulting Group, Inc. Page 54
Comparing Cloquet to National & State of Minnesota NFIRS Statistics – 2013 The consultants had in the past utilized NFIRS statistics from the U.S. Fire Administration – National Fire Incident Reporting System – Topical Fire Report Series, which allowed comparison of emergency response data on a national, regional, state, and local basis. However, some categories (those in italics) of data were last gathered in 2004 and updated statistics are not available for those categories. Other sources, such as NFPA, do not list all of the NFIRS categories; however, the few they do indicate significant changes in numbers which lessened the value of the old NFIRS report. Therefore, the best comparison is illustrated in the table below which compares the most recent NFPA estimates (2012), the Cloquet Area Fire District emergency data, and the State of Minnesota 2013 data.
Table 7: Comparison National, State, & CAFD NFIRS Data - 2013 NFIRS National Minnesota Cloquet 100 Fire 4.32% 5.27% 1.62% 200 Overpressure//Rupture/Explosion 0.30% 0.19% 0.18% 300 Rescue/EMS 68.14% 61.51% 85.57% 400 Hazardous Condition 1.13% 4.65% 1.88% 500 Service Call 7.00% 5.86% 3.37% 600 Good Intent 9.70% 9.28% 1.95% 700 False Alarm/False Call 7.03% 10.45% 5.35% 800 Severe Weather 0.30% see below 0.03% 900 Special Incident 1.60% see below 0.06% MN uses "Other" for 800 & 900 series 2.43% * Italicized percentages in National category are 2004 percentages which have not been updated
The fire department leadership should be commended for the lower than average percentage of incidents in six of the nine NFIRS national and state averages. False alarms percentage is most significant.
Series 700 – False Alarms/Calls The sub-categories for false alarm and false call include: Malicious, mischievous false alarm Bomb scare
McGrath Consulting Group, Inc. Page 55
System or detector malfunction Unintentional system or detector operation (no fire) Biohazard scare False alarm and false call, other
Cloquet Area Fire District should be commended for the lower than national and state average for responding to false alarms. The data would indicate that Cloquet does an excellent job in determining the cause of a false alarm and then having the Fire Prevention Bureau follow-up to resolve the issue.
Not only does the resolution of false alarms reduce unnecessary emergency responses, it also is a significant safety factor for the community as well as the service providers. Vehicle accidents (responding to or returning from) are tied for the second leading cause of firefighter/EMT line- of-duty deaths.
Conversely, NFIRS 300 category is higher than the national and state average. NFIRS 300 category is illustrated below:
Series 300 – Rescue/Emergency Medical Services Cloquet Area Fire District has a greater percentage of EMS incidents compared to the national and the State of Minnesota incident rate.
The sub-categories for fire include: Medical assist Emergency medical service incident Lock-in Search for lost person Extrication, rescue Water and ice-related rescue Electrical rescue Rescue or EMS standby Rescue, emergency medical service (EMS) incident, other
McGrath Consulting Group, Inc. Page 56
Cloquet Area Fire District, unlike most fire departments who provide EMS services, does not limit that service to emergency responses only. Cloquet does non-emergency patient transports on a scheduled basis.
Emergency Service Trends Progressive fire department leadership utilizes emergency response data for multiple purposes including budgeting, strategic planning, management, and resource deployment. The data in the following areas is beneficial to the day-to-day management of a department. The following areas will be examined as they pertain to the Cloquet Area Fire District: Simultaneous incidents Calls by time of day Calls by day of the week Calls by month Calls distribution by district Distribution by shift Mutual aid/Automatic aid
Simultaneous/Overlapping Incidents Simultaneous/overlapping incidents is a term utilized by the consultants which refers to times when the department is handling an emergency situation and another unrelated emergency incident occurs requiring immediate fire department response. Depending on the record management system utilized by a department, these incidents might be called overlapping, or back-to-back calls.
The significance of the amount and frequency of simultaneous incidents can result in increased response times or greater usage of mutual aid. There is no consensus in the industry as to an exact number when simultaneous/overlapping incidents require additional resources. Fire departments do not have the ability to “stack calls” as do police agencies who routinely prioritize
McGrath Consulting Group, Inc. Page 57
calls and dispatch accordingly. With few exceptions, when 9-1-1 requests the fire department it is for an emergency – at least in the opinion of the caller.
If every piece of fire or EMS apparatus were available at its assigned location every time a call for service was received, the department’s reliability would be 100%. If, however, a call is received for a particular station/unit, but that station/unit is already committed to another incident, be it fire or EMS, and the next closest unit must respond from a different station or source; the substitute company may exceed the maximum prescribed response time.
As the number of emergency calls per day increases, the probability increases that the primary unit needed for response is already committed and a backup or substitute unit will need to be dispatched. Although there are no national standards that indicate when simultaneous/overlapping calls require additional on-duty personnel the consultants’ experience indicates that when simultaneous/overlapping calls reach 15% to 20% serious consideration to additional on-duty personnel is recommended.
Cloquet Simultaneous/Overlapping Data One cannot fault the fire department on effort to provide simultaneous/overlapping call data. The consultants were given four separate data folders addressing simultaneous/overlapping calls. Unfortunately, the data did not match or even come close to matching the actual number of simultaneous/overlapping calls.
An ImageTrend™ query for 2011 indicated a total of 441(20.09%) simultaneous/overlapping calls and further indicated how many times there were two, three, four, and even five simultaneous/overlapping calls. Conversely, another source indicated that in 2013 simultaneous/overlapping calls represented 0.53% or 14 of the 2,634 emergency incidents that year.
It is very likely that the fire department could quantifiably present data that would show that simultaneous/overlapping incidents are occurring greater than 15% of the time. It appears this
McGrath Consulting Group, Inc. Page 58
data could have been available through ImageTrend™ if the station management was performing their role in data quality control by checking each entry before leaving at the end of the shift. There is a significant opportunity to provide leadership with very helpful data in requesting resources for the fire department.
Incidents by Time of Day Fire department leadership should be particularly interested in data which indicates when the department is at its busiest both in time of day, day of the week, and month. The reason is when a significant pattern is discovered that indicates the probability that emergency incidents will occur at a certain time, it allows the department to utilize “peak staffing”. This is especially beneficial for organizations that can clearly identify when emergency incidents are most likely to occur.
Peak staffing allows the department leadership to utilize additional resources (paid-on-call or paid-on-premise) for the time that statistically the call will occur, rather than adding additional 24-hour shift personnel when statistically they will only be needed for a short period.
Cloquet Incidents by Time of Day Data The department, as explained in the data challenges section, provided time of day by incident in two data queries: one for fire and one for EMS. The department was unable to merge the two queries together to illustrate a whole view of the department; therefore, the total number of incidents by time of day is skewed.
The consultants contacted ImageTrend™ who spent copious time attempting to merge the two data/record bases – but were unsuccessful due to the way the data was entered. ImageTrend™ did suggest a simple inexpensive correction and the department leadership was encouraged to discuss these opportunities with ImageTrend™.
Therefore, although the department revised the data, it still only reflects EMS incidents and does not reflect any fire incidents. This revised data is illustrated in the figure below:
McGrath Consulting Group, Inc. Page 59
Figure 7: Incidents by Time of Day
In most departments, incidents charted by time of day follow a pattern similar to a “bell curve.” The least busy time of day is from midnight to early morning, peaking in the mid-afternoon, and decreasing in the very late evening hours. Although the least busy time of day is from midnight to early morning, it is also when the highest number of civilian fire deaths occurs, due to the occupants sleeping. Those most at risk are the very young and old, who often are less able to escape and protect themselves.
The above figure does illustrate that there are very little variations among the three-year line plots. This consistency might be somewhat unexpected to some; inasmuch as there has been an increase in the total number of calls year-to-year (with the exception of 2008 decrease and 2011 at baseline). It might lead one to assume a certain time of day was more significant than quantifiably proven – an excellent example of how data allows leadership to utilize resources in the most efficient and cost-effective manner.
The figure below illustrates the three-year average for incidents by day (EMS only). The Cloquet Area Fire District’s time of day figures are consistent with the normal “bell curve” found in most departments.
McGrath Consulting Group, Inc. Page 60
Figure 8: Three-Year Average - Time of Day
Incidents by Day of the Week Incidents reviewed by day of the week are another metric utilized by leadership to manage the resources of the organization. Coupled with time of day and perhaps incidents by month, this information could be of value if a pattern emerges suggesting peak staffing would be advantageous. Peak staffing is a very viable option for Cloquet inasmuch as they have a pool of paid-on-call members.
The figure below illustrates the Cloquet three-year average for calls by day of the week.
Figure 9: Three-Year Average - Calls by Day of the Week
330 320 310 300 290 280 270 260 250 Sun Mon Tue Wed Thu Fri Sat Avg 281 308 279 309 316 321 303
McGrath Consulting Group, Inc. Page 61
The figure might be somewhat incorrect inasmuch as the department was able to provide day of the week data for both fire and EMS for 2011 but for 2012 and 2013 the data represented EMS only.
In order to identify if there is a significant pattern of day of the week data, one must examine the study period years illustrated in one figure as shown below:
Figure 10: Day of the Week - Each Year 370
350
330
310
290
270
250 Sun Mon Tue Wed Thu Fri Sat 2011 322 306 280 305 327 342 313 2012 249 288 267 293 294 266 275 2013 273 331 289 330 326 354 321
* 2012 & 2013 reflect EMS data only
The day of the week three-year average figure above does not reflect any significant pattern; although Friday showed the greatest activity in 2011 and 2012, it was next to the fewest calls in 2012. The department leadership should continue to monitor this type of data for future patterns.
Incidents by Month The Cloquet area provides copious opportunities for outdoor activities year-round ranging from hiking, fishing, biking, water and ice activates, and hunting; therefore, as with most mid-west areas, the spring, summer, and fall usually have more tourists and activities resulting in a greater demand for services on the fire department. However, the data provided doesn’t show a series of months as excessively busier than others.
McGrath Consulting Group, Inc. Page 62
Figure 11: Three-Year Average - Calls by Month
250
200
150
100
50
0 Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec Avg 169 161 183 177 181 182 205 186 166 161 173 176
The figure below illustrates all three years which suggests that there is not a pattern of a month that would indicate a significant demand on the fire/EMS service.
Figure 12: Calls by Month for 2011 - 2013 240 220 200 180 160 140 120 100 Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec 2011 209 142 179 197 164 200 231 195 178 175 163 162 2012 148 147 168 157 191 160 185 156 142 130 162 180 2013 151 193 201 178 189 186 200 206 179 178 193 185
* 2012 & 2013 reflect EMS data only
Incidents by Districts A particular challenge for the consulting team was to determine accurate data which would indicate where the calls are occurring for the fire department. In 2011 both fire and EMS were
McGrath Consulting Group, Inc. Page 63
recorded by districts. Although numbers were provided for the other two years they obviously were inaccurate (e.g., 2011 data = 2,195 incidents; 2012 data = 1,114, and 2013 data = 472). Therefore, if one were to use the data from the fire data/record management query for total calls by district, the fire department only responded to 472 total calls in 2013.
The table below apparently is what the fire department utilizes for determining where the emergency incidents are occurring – calls by district.
Table 8: Calls by District - 2011 only Call by District 2,011 2,012 2,013 % of Total Arrowhead Township 2 0 0 0.05% Black Bear Casino 4 7 6 0.45% Brookston 6 11 1 0.48% Carlton 9 15 9 0.87% Cloquet 484 456 346 34.01% CMH 0 73 2 1.98% Cromwell 3 1 2 0.16% Culver Township 1 5 2 0.21% East Brevator 2 7 0 0.24% FDL Reservation 16 1 0 0.45% Floodwood 1 1 0 0.05% Industrial Township 2 5 0 0.19% Perch Lake 17 18 8 1.14% Sappi 8 28 1 0.98% Scanlon 44 32 32 2.86% Thompson Township 14 18 3 0.93% West Brevator 4 9 0 0.34% No District Listed 1,578 427 60 54.62% Total 2,195 1,114 472 3,781 * 2012 & 2013 numbers inaccurate
The data for the year 2011 is the only number that is near being accurate so the consultants will reference that number. What should be of significant concern is that 1,578 or 78.89% of all data entries for “Calls by District” were unidentified. Obviously, it would be difficult for department leadership to strategically plan for needed resources if there was no knowledge of where 78.89% of the calls were occurring. Perhaps this percentage of calls are occurring in a rural area and if
McGrath Consulting Group, Inc. Page 64
so perhaps that rural area could be divided into quadrants to further identify were future resources will be needed.
However, when EMS data/records for total calls were provided they were not listed as “districts” rather by “city” as illustrated in the table below:
Table 9: Calls by City - EMS only EMS Runs by City 2011 2012 2013 % of Total Atkinson 2 0.03% Barnum 1 1 0.03% Bemidji 1 0.02% Blackhoff 1 2 0.05% Brevator 1 1 0.03% Brookston 54 40 47 2.34% Carlton 11 4 4 0.32% Cloquet 1,565 1,698 1,955 86.52% Coleraine 1 0.02% Cromwell 1 1 1 0.05% Culver 1 1 0.03% Duluth 1 4 3 0.13% Esko 122 113 132 6.09% Floodwood 10 3 10 0.38% Industrial (Township of) 1 0.02% Meadowlands 1 0.02% Moose Lake 1 0.02% Proctor 1 1 0.03% Prosit 1 0.02% Saginaw 15 5 0.33% Saginaw (RR name Grand Lake) 12 24 15 0.85% Sawyer - 1 4 0.08% Scanlon 54 33 58 2.40% Wrenshall 1 0.02% Thomson 3 0.05% Unknown 1 5 2 0.13% Total 1,853 1,939 2,239 6,031 * 2012 & 2013 reflect EMS data only
McGrath Consulting Group, Inc. Page 65
Again total number of calls does not match; however, the above table provides another perspective of where emergency responses are occurring. Between the two tables (district and city) it is clear the preponderance of responses are within the City of Cloquet.
Incidents by Shift Leadership, utilizing the metric of incidents by shift, initially might appear to be of little value other than bragging rights for the busiest shift. However, there is value if the leadership utilizes the data for quality control. If a particular shift’s yearly incident data conflicts with other data, the leadership can review total incident responses for each shift and identify if the inconsistency is department-wide or problematic to a single shift. In either case, examining incidents by shift primarily is a quality control measurement and one appropriate for Cloquet Area Fire District.
Mutual/Automatic Aid The philosophical concept of mutual aid is to offer assistance to a fire department upon request of the host district. The sole purpose is to give or receive assistance when all available resources, equipment or personnel, are depleted—and then on a limited basis. Automatic aid differs from mutual aid in that it is a pre-determined agreement with another department to respond automatically when the host department receives an alarm at a given location or area.
In some studies, the consultants have found that governing officials believe that requesting assistance from other communities on a routine basis will preclude them from having to add additional personnel, pay overtime, or provide more apparatus. This thinking is greatly flawed inasmuch as the foundation of mutual and automatic aid is reciprocity.
The department provided the following mutual aid figures for the three-year study period as illustrated in the tables below.
McGrath Consulting Group, Inc. Page 66
Table 10: Mutual Aid - Given & Received - Three-Year Study Period Mutual Aid Given 2011 2012 2013 Mutual Aid Received 2011 2012 2013 Arrowhead 1 0 0 Brevator 2 4 1 Brevator 0 1 2 Carlton Vol. 3 7 2 Carlton Vol. 0 1 0 Cromwell Vol 2 0 0 Thompson Twp ESKO 0 0 1 Erie Rural Fire Dept* 2 0 0 Wrenshall 1 0 0 Thompson Twp ESKO 1 2 0 Area Not Listed 2 2 9 Wrenshall 1 0 0 Total 4 4 12 Total 11 13 3 *Fire Chief indicates there is no fire department by this name in MN.
What seems somewhat inconsistent is the simultaneous/overlapping call data indicated that there were four and even five emergency incidents occurring at once and one might have expected outside resources would have been requested. CAFD is very adept at handling the first simultaneous incident but unless the department begins to train with other departments and improve those relationships, they are ill-prepared for a catastrophic event.
In addition, Cloquet is the major provider in size within the area and it would seem reasonable that smaller departments might request assistance (especially paramedic intervention) on a more frequent basis. However, it is possible these are categorized within the EMS data and not listed as mutual aid.
Mutual Aid Box Alarm (MABAS) The Mutual Aid Box Alarm System (MABAS) currently includes five Midwest states: Illinois, Wisconsin, Indiana, Missouri, and Iowa have adopted the program; Minnesota and Ohio are considering adoption. The MABAS system has been recognized as the “best practice” by the Department of Homeland Security, and is currently being considered as the model for interstate mutual aid agreements. The consultants believe it is prudent to briefly discuss the advantages of MABAS while acknowledging that the Cloquet Area Fire District alone cannot implement the program; rather, they could be leaders in Minnesota by becoming a member.
The concept behind MABAS is that a fire department develops an alarm card, which will indicate what apparatus/equipment and/or personnel they are requesting, who they are requesting it from, and what level (how much equipment) is desired prior to the actual emergency. The
McGrath Consulting Group, Inc. Page 67
cards are designed to cover a generic situation and/or area of the response district. Different cards will be designed for particular situations such as tanker box (requiring large amounts of water to be trucked in), mass casualty box, confined space box, hazardous material box, grass/brush fire box, etc.
The MABAS card is divided into two sections. The top portion of the card is classified with the lowest alarm (still alarm) and progresses in magnitude in the following order, box, 2nd, 3rd, 4th, and 5th alarm. Each alarm will bring in additional apparatus as designated by the host (community having the emergency) department.
The card also designates the type of equipment to be sent and from which department. For example, a typical card will have an alarm classification heading (i.e., engines, tender, trucks, ambulance, chiefs, and special equipment).
The bottom half of the MABAS alarm card designates the departments that are to change quarters to the stricken community. Changes of quarter units respond from their respective communities and staff the fire/rescue station of the stricken community until the time that community can cover additional calls itself.
MABAS cards are a predetermined assessment of the fire and/or rescue risk in a community and can be changed (additional equipment requested) during the course of an incident. The value of such a card is the fact that it releases the command officer from the need to recall what equipment is available and where it might come from during stressful times.
Most MABAS cards are designed to take a minimum amount of resources from any neighboring community, thereby allowing that community to adequately protect its own district. Therefore, it is not uncommon to have numerous departments respond to an incident versus only a few departments with multiple apparatus and staffing.
McGrath Consulting Group, Inc. Page 68
By utilizing the MABAS system, the fire department automatically has the ability to utilize apparatus from other MABAS subscribers in other divisions (areas). Therefore, if a named community is unable to respond for any reason, MABAS has the ability to automatically fill that position with another unit, even if it requires going to an interdivisional box alarm. An interdivisional box might involve fire departments that do not normally provide aid to the CAFD. The MABAS system is utilized by a number of states; through MABAS, CAFD could receive assistance from departments outside the county and even the state or multiple states if the emergency event warrants.
Recommendations – Emergency Activities The consultants wish to emphasize that although there was considerable challenges with the data the department leadership and individuals who were requested to assist in providing the data made a sincere effort to meet our request. At no time did the consulting team believe that anyone was attempting to hinder or conceal information, or be uncooperative. The leadership of the department was sincerely surprised and troubled with the conflicting data.
The department leadership should identify what data they require on a monthly basis. This data should be the single source of information that is shared with the board and department members. Priority 1
The department leadership needs to routinely utilize data in the management of the organization. Priority 1
Emphasis should be placed on improving the data/record management system that will fully integrate both fire and EMS incidents into a single source. Priority 2
All fire department officers (chief to captains) should receive formal training from the data/record management system provider on how to properly code and enter emergency incidents into the software program. The chief and battalion chiefs should also receive formal training on proper query and retrieval methods of data. Priority 2
Emergency incidents that require additional resources should be recorded as a single event and not as separate multiple incidents. Priority 1
Emergency medical calls should be classified into two major categories: Emergency and Non-emergency (pre-arranged inter-medical care facility transports). Priority 2
McGrath Consulting Group, Inc. Page 69
A data quality control/assurance program should be implemented and the battalion chiefs should be responsible for ensuring all data/record management computer entries are complete and correct. Priority 1
The department should be commended on having a lower than national and State of Minnesota average for false alarms. Priority 5
Recording of simultaneous/overlapping call data should be a high priority and those calls should be categorized into fire and EMS. The ability to identify an incident when more than two simultaneous/overlapping events are occurring (three, four, etc.) should be emphasized. Priority 1
Although incidents by time of day, day of the week, and month did not indicate any immediate need for peak staffing these data areas should be reviewed as part of the monthly evaluation of emergency activities by the department leadership. Priority 5
Emergency incidents responses by district should be consistent when recording calls both in fire and EMS. An additional data field of EMS calls by city is very appropriate. Priority 2
A figure of 78.96% of calls not being identified as to where they occurred should be resolved immediately. Priority 1
Mutual aid data should be recorded so the department leadership should easily be able to recognize what type of aid was given or received and to or from whom. Priority 3
The Cloquet Area Fire District Board and department leadership should become very active in the adoption and implementation of the MABAS. Priority 4
McGrath Consulting Group, Inc. Page 70
Response Times Providing emergency services is all about response times. How long it takes the fire department to get on location to begin to mitigate the fire or provide emergency medical service is the primal issue. An acceptable response time is subjective depending on if you are the one in need or not. When a citizen makes a call to 9-1-1 for an ambulance or fire, every second seems like minutes and their anxiety will disproportionately increase as the severity of the incident worsens.
All fire professionals understand the importance of response time and many have lived the results of not being there just a few seconds sooner. Yet many fire departments do not routinely use data as a management tool to address opportunities to improve response times. This is unfortunately true for the CAFD. The response time data provided is so contradictory that at best the consultants can only give an educated guess as to what the response time is of the CAFD.
CAFD Public Safety Answering Point (PSAP) The CAFD response district lies within two counties: Carlton and St. Louis County and therefore, the department deals with two different PSAPs. The preponderance of dispatches (90%) involve the Carlton PSAP; whereas, only (10%) are transmitted from the St. Louis PSAP. The Dispatch/Public Safety Answering Point section of this report presents a comprehensive assessment of each PSAP.
Response Time Components When examining response times, it is essential that all parties are talking about the same response time components. When a fire department states they must be able to reach the emergency in four minutes; they are only referring to travel time (under NFPA 1710) and are excluding notification and turnout time.
The actual measurement of response time must be a total system understanding of all components of response time, including:
McGrath Consulting Group, Inc. Page 71
Detection Time: The time it takes to detect the emergency incident and dial 9-1-1.
Notification Time: The time from when the call is received by dispatch (PSAP) to the time the department is notified.
Turnout Time: The time it takes personnel to prepare and leave quarters after notification.
Travel Time: The time the first fire apparatus leaves the station to the time it arrives on the scene. (The term travel time ends when the unit arrives on location of the emergency)
Mitigation Time: The time the first apparatus arrives at the scene to the time when actual extinguishing/treatment (mitigation) efforts begin.
Detection Time – the emergency agency has little to no control of when a person will actually dial 9-1-1 in an emergency. First, most people are very reluctant to call 9-1-1 until they realize they are unable to resolve the issue by themselves. Although detection time significantly impacts the emergency outcome, the fire department has no control over this factor.
Notification Time – the time from when the Public Safety Answering Point (PSAP aka: Dispatch) receives the 9-1-1 call until the time the department is notified. There are numerous standards for PSAP when it comes to answering the phone from how many rings are acceptable to the one most appropriate for CAFD: NFPA 1221. The NFPA 1221 requires the PSAP (Communication Center) to be able to answer the phone and notify the department within 60 seconds.
Turnout Time (aka: Out the Door Time) – the time it takes personnel to prepare and leave quarters after notification. This factor of total response time is completely within the control of the fire department assuming they record and utilize the information in the management of the organization. Under NFPA 1720, turnout times vary depending on the population within a square mile (see table below).
Travel Time - this represents the actual time it takes the apparatus to drive from the fire station to the emergency scene. Weather conditions and traffic congestion will be a factor in the length of time it takes the apparatus to arrive on the scene. Again under NFPA 1720 the travel times will vary as does the percent of compliance (see table below). McGrath Consulting Group, Inc. Page 72
Table 11: NFPA 1720 – Response Times & Staffing Demand Minimum Staff to Response Time Meet Objective Zone (a) Demographics Respond (b) (Minutes) (c) (%) Urban >1,000/mi2 15 9 90 Suburban 500-1,000/mi2 10 10 80 Rural <500/mi2 6 14 80 Related to Travel Remote > 8 miles 4 Distance 90 Special Risk AHJ* AHJ* AHJ* 90 * Determined by Authority Having Jurisdiction (AHJ) a) A jurisdiction can have more than one demand zone b) Minimum staffing includes members responding from the AHJ’s department and automatic aid c) Response time begins upon completion of the dispatch notification and ends at the time interval shown in the table.
Mitigation Time – the time from arrival of the first mitigating unit until actual mitigation activities begins.
CAFD Notification Times The consultants were given a spreadsheet from the department that supposedly represented the notification, turnout, and travel times for 2013. The first issue was that it contained 7,760 entries when there were only 2,634 incidents in 2013. Secondly, there were numerous calls (238) in which the fire department responded before the alarm was even received by dispatch; the most noticeable was a 23 hour 58 minutes 8 seconds response before the alarm was received. Lastly, if the consultants removed all calls in which it took over 10 minutes for on-duty personnel to go to the apparatus and leave the station the team was left with 22 calls which averaged 5 minutes.
However, in a report titled: All Report Emergency Activity 2013 the department actually showed their response time in four different numbers depending on how it was queried as illustrated in the table below:
Table 12: Average Response Times – Notification to Arrival Based On 2013 630 Calls (Fire) 4 min. 24 sec. 472 Calls (By District) 6 min. 30 sec. Average Run Times 4 min. 39 sec. EMS (Scene Arrival) 4 min. 16 sec. Average of the Averages 4 min. 57 sec. Based on ImageTrend™ All Report Emergency Activity - 2013
McGrath Consulting Group, Inc. Page 73
Respectfully, the consultants are unable to provide any components of response time and obviously this is consistent with the challenges found in the Emergency Activity section of the report. With that said this type of data doesn’t allow the department to showcase its high level of service.
Recommendations – Response Times Most people would consider the most important piece of data pertaining to a fire/EMS department performance to be their response times. Unfortunately, no credibility can be placed on CAFD response times; the department needs to address this issue immediately. Priority 1.
McGrath Consulting Group, Inc. Page 74
EMS System Oversight The Cloquet Area Fire District currently provides Advanced Life Support (ALS) to the residents and visitors within the districts’ jurisdiction boundaries and additional areas through a contractual agreement. All emergency medical calls as well as non-emergency transports from Cloquet Memorial Hospital to other medical facilities are handled by the on-duty career shift paramedics.
Of the 21 career shift personnel all but one are certified paramedics the other being an emergency medical technician - intermediate (EMT-I). The 21 shift personnel are divided into three shifts, with seven being assigned to each shift. With days-off, sick, or excused absences it is not uncommon for the on-duty career staffing to be at four. Call-back of off-duty career members begins when the number of available on-duty shift personnel falls below four.
Included in these on-duty staffing shift numbers are the battalion chiefs which normally don’t respond on an ambulance; rather in their command vehicle when additional personnel are requested. For more serious medical events the ambulance crew has the authority to call for as much assistance that is needed to properly and safely treat the patient. On days when staffing is below five on-duty career a single ambulance call will require the call-back of off-duty career at overtime. This holds true for the non-emergency transports prearranged through the hospital.
During the interview with shift personnel there were several members that argued that non- emergency transports are really a misnomer because who is qualified to determine over the phone what is and what is not an emergency. In addition, the argument was made that if the hospital deemed the patient needed care beyond the capabilities of their services it must be an emergency. This is an argument often heard in similar situations where the call-back overtime has become a necessity in order to maintain their current lifestyle and loss of overtime would have a significant negative impact on the employee.
If compensation is the issue it should be addressed head-on. Most departments define emergency patient transport as the patient goes to the closest emergency room; all other
McGrath Consulting Group, Inc. Page 75
transports fall into the non-emergency category. This is not to say there are not exceptions such as transports from one hospital to another for a critically ill or special need patient. In those cases the skills of the paramedic might be taxed to their fullest.
There are four fully stocked ALS ambulances housed at Station #1 which results in a very tight fit often limiting the on-duty crew from working on the ambulances without moving a vehicle outside. Ambulances are staffed with two paramedics when sufficient paramedics are on duty.
Paid-On-Call EMS Participation In reference to Station #1 the answer to the paid-on-call participation is very little. According to policy available paid-on-call staff are allowed to come to the station to participate in the activities and ride as an extra hand on the ambulances or fire suppression vehicles. However, during the employee interviews, the paid-on-call members who had the courage to speak indicated that it is very clear they are not a welcome asset at the station. The result is simply a significant source of personnel which could augment the on-duty, provide the back-up when numbers fall below four, handle the non-emergency transports if the patient needs meets their qualifications, or do anything to gain experience is almost none utilized.
Of course repeatedly the consultants heard that the paid-on-call members are not qualified and therefore could not be integrated into the EMS delivery system. Currently, the only involvement of paid-on-call in the EMS delivery system is at the First Responder level; the lowest level of certification for individuals providing emergency patient treatment to the public.
So how does one become qualified? Step one in becoming qualified is to have those who are qualified teach, mentor, encourage, take interest in one’s success, and treat you with respect. This is not to say that some career members don’t do exactly that; however, the overall cultural climate in Station #1 is not achieving the results needed in the organization.
Were the consultants sold a bill of goods by the paid-on-call? Is the real issue that the paid-on- call members aren’t willing to invest the time and effort to become certified, not as paramedics,
McGrath Consulting Group, Inc. Page 76
but a lower certification that would allow them to work hand-in -and with the career members? Or is it true that the paid-on-call are told if they want to watch cable television, sit in the recliners, and utilize cooking facilities they had to pay (informed, by a career member)? This was apparently resolved by assessing the Volunteer Association's fund a percentage of what one career firefighter's annual union dues were after it became an issue; this arrangement still exists today.
However, recently the chief learned that several career members claim that most items in the kitchen were “theirs” and threatened to put locks on the cabinets to keep the paid-on-call and others from using items. In most firehouses one could lay a $100 bill on the counter and it would be there weeks later; however, leave food unattended and it somehow disappears. It is hard to determine which might be true, but it wasn’t hard to identify during site visits, the unwillingness of some members to create a team environment.
EMS Involvement in Station #2 & #3 Station #2 in Perch Lake is approximately seven miles from Station #1 and has paid-on-call members; nine which are certified as First Responders or emergency medical technician – basic (EMT-B) . Although first responder is the lowest level of patient treatment it also can be the vital link of keeping the victim in a stable enough condition for treatment by paramedics. Therefore, EMS calls in the Perch Lake area should have Station #2 First Responders respond. A benefit to the first responder would be if time allowed to have that first responder/EMT stay with the patient and work with the paramedics during transport to the hospital.
Station #3 is slightly more than two miles from Station #1 and has 16 paid-on-call First Responders or EMT-B. Because of the response time of the on-duty and the paid-on-call members from their work or home it is common for the Station #1 crew to reach the scene first. However, as with Station #2 First Responders/EMTs, if they have initiated treatment and have time to ride with the patient to the hospital, it would be beneficial.
McGrath Consulting Group, Inc. Page 77
The Minnesota Emergency Medical Services Regulatory Board (EMSRB) and the National Registry of Emergency Medical Technicians certify all EMS personnel for the CAFD. At the time of the study, the CAFD roster indicated there were 15 medical first responders, 12 EMT’s, and 22 paramedics on staff.
Proposed Paid-On-Call EMS Involvement The CAFD should seek to train a core group of paid-on-call members to the EMT-B level who would then be on call to handle non-emergency patient transports. These type transports can be pre-scheduled or if requested, immediately; if the on-duty paramedics respond to find a stable patient needing transport from facility to facility they can stay in service and request the paid-on- call ambulance.
In situations where the stability of the patient could be in question the paid-on-call ambulance could perform the transport with the assistance of one paramedic from the duty-crew. In situations where the patient is not stable and paramedic intervention and treatment is at a high probability the on-duty paramedic crew should perform the transport.
Paid-On-Call EMS Station Coverage In situations where an ambulance response of on-duty personnel is less than four at the station, the paid-on-call staff should be called in to cover the station and respond with the paramedic (battalion chiefs are paramedics) for simultaneous emergency calls. At any time the number of on-duty paramedics becomes less than two, a recall of off-duty paramedics should occur.
EMS Training Although certified by the EMSRB the service provider must function under the direction of a Project Medical Director. The consultants were able to interview the director who is a local physician, and he was most enthusiastic about the CAFD EMS program. The director oversees the certification process, medical protocols, the medical quality assurance program, and works closely with all EMS personnel connected with the CAFD. The director is paid an annual stipend for these services by the CAFD.
McGrath Consulting Group, Inc. Page 78
The CAFD provides training for re-certification, continuing education credits, Cardio Pulmonary Resuscitation, Advanced Cardiac Life Support, Pediatric Advanced Life Support, International Trauma Life Support and a host of other medical training. The Medical First Responder re- certification requires a 16 hour refresher course, and EMT recertification requires 48 hours over 2 years and a 24 hour refresher course. Paramedic recertification requires 72 hours of class room, or didactic hours, plus practical skills evaluations.
All of this training is done either in-house or through other outside training sources. The district’s 22 paramedics are certified as paramedics through the National Registry of EMTs, which is a national organization providing professional assurance of competency and certification in EMS. Each paramedic must adhere to these requirements and obtain these minimum hours of continuing educational training to maintain their certification.
There are forty-eight “core” or required topics hours as dictated through the National Registry, while the remaining twenty-four hours may be selected from their list of elective training. The majority of the required hours are obtainable through internet-based programs, and are carried out in conjunction with a “hands-on” practical testing process to ensure competency with the various skills and knowledge through a certified instructor. This practical testing is carried out and overseen through the district’s training division chief, who is approved by the Minnesota Emergency Medical Services Regulatory Board (EMSRB) to certify the testing. Additionally, there are three certifications required of the paramedic’s service for the CAFD. They include: Advanced Cardiac Life Support (ACLS), Pediatric Advanced Life Support (PALS), and Basic/Intermediate Trauma Life Support (BTLS/ITLS).
Emergency Patient Transports The nature of the emergency medical call will dictate which hospital receives the patient. If the patient’s condition is deemed stable enough by the paramedics they will honor the patient’s request for hospital of choice. The table below illustrates the three most hospitals to which CAFD would transport:
McGrath Consulting Group, Inc. Page 79
Table 13: Hospital Transported To By CAFD - Patient Choice Destination # of Runs % of Total Community Memorial Hospital - Cloquet 874 39.04% St. Luke's Hospital - Duluth 311 13.89% St. Mary's Medical Center - Duluth 550 24.56% Total 1,735 77.49% Note: these percentages also include non-emergency patient transports
Trauma Level Hospital Description A comprehensive statewide trauma system has been responsible for increasing survival rates by 15 to 20 percent in states where it has been implemented. St. Luke’s Hospital in Duluth is certified as a Level II – Trauma Center by the Minnesota Department of Health. The table below defines the trauma level certification description;
Table 14: Minnesota Trauma Level Hospital Description Trauma Level Description Trauma Center is capable of providing total care for every aspect of injury – from Level I prevention through rehabilitation. Level II Trauma Center is able to initiate definitive care for all injured patients. Trauma Center has demonstrated an ability to provide prompt assessment, Level III resuscitation, stabilization of injured patients and emergency operations.
Level IV Trauma Center has demonstrated an ability to provide advanced trauma life support (ATLS) prior to transfer of patients to a higher level trauma center. Level V Provides initial evaluation, stabilization, diagnostic capabilities, and transfer to a higher level of care.
Therefore, an emergency patient might not be transported to their hospital of choice. The project medical director can give the authority to the paramedic to determine what is in the best survival interest of the patient.
Hospital transports to Duluth require approximately a one to two-hour “out of service” time for the ambulance and crew and their absence is routinely covered by off-duty career staffing as needed.
McGrath Consulting Group, Inc. Page 80
Occasionally, there are more extended transports to further locations such as to the Minneapolis- St. Paul or Rochester areas which require a much longer “out of service” time. The table below illustrates the hospitals transported to in 2013 by CAFD ambulances:
Table 15: Patient Transport to Hospitals - 2013 Destination # of Runs % of Total Assisted Living Facility 6 0.27% Cambridge Memorial Hospital 2 0.09% Community Memorial Hospital - Cloquet 874 39.04% Fairview Riverside Hospital - Minneapolis 1 0.04% Fairview Southdale Hospital - Edina 1 0.04% Fairview University Medical Center - Minneapolis 1 0.04% Intercept/Air Ambulance (Rotor Craft) 2 0.09% Miller-Dwan Medical Center - Duluth 35 1.56% No Load / No Patient 309 13.80% Not Known 1 0.04% Nursing Home 41 1.83% Other Minnesota Hospital 14 0.63% Private Residence 12 0.54% Rochester Methodist Hospital 1 0.04% St. Cloud Hospital 2 0.09% St. Joseph's Medical Center - Brainerd 6 0.27% St. Luke's Hospital - Duluth 311 13.89% St. Mary's Medical Center - Duluth 550 24.56% University Medical Center - Hibbing 14 0.63% Va Medical Center - Fort Snelling 1 0.04% Other Destination 55 2.46% Total 2,239 100%
Non-Emergency Patient Inter-facility Transfers The consultants acknowledge the interruption of what constitutes an emergency medical call is very subjective e.g. “if you break your wrist that really isn’t an emergency but if I break mine it is.” Therefore, the consultants are defining an emergency transport is a patient who needs to be transported to an emergency room for patient treatment. The CAFD in conjunction with the project medical director must define what an emergency transport is and what a non-emergency patient inter-facility transfer is.
McGrath Consulting Group, Inc. Page 81
The department indicated they were unable to provide the percentage of EMS calls that could be categorized as non-emergency (patient inter-facility transfers); however, the Fire Chief conducted a hand count of 533 inter-facility transports for 2013. Therefore, if there were 533 inter-facility transports that would equal 23.81% of the total calls might be able to be handled by paid-on-call personnel.
However, what wasn’t taken into account is the fact that of the 861 patient transports to either St. Luke’s or St. Mary’s hospital in Duluth not all of those patients went there directly from the scene of the call; rather approximately 75% of those patients (646) were inter-facility transports as illustrated in the table below:
Table 16: Estimated Patient Transfers to Duluth Destination # of Runs 3/4 Transfers % of Total St. Luke's Hospital - Duluth 311 223 13.07% St. Mary's Medical Center - Duluth 550 413 24.21% Others* 29 na 1.70% Total Non-emergency Patient Transfers 861 665 38.98% * Chief’s totals were 29 incidents higher than other data provided
Therefore, it is possible that the actual number of non-emergency (stable patient) inter-facility transfers could be in the range of 23.81% to 62.79% (23.81% + 38.98%). The essential issue is CAFD in conjunction with the project medical director must determine what inter-facility transports could be handled by paid-on-call EMTs or what inter-facility transports require paramedics.
One exception exists regarding the routine transport services. The Cloquet Memorial Hospital does have a contract to transport veterans when necessary, and that is done through a private contractor.
The restocking of supplies utilized on ambulance calls including drug solutions and narcotics is carried out at Station #1. This re-stocking program is overseen by the CAFD EMS Director which is one of the three battalion chiefs. Each patient is billed for all supplies utilized on the call. All patients transported by the CAFD are billed for service and supplies through Advantage
McGrath Consulting Group, Inc. Page 82
Billing Concepts out of Hibbing, Minnesota. This ambulance billing company has been utilized over that past five years and reported to collect approximately 52% of services submitted. The consultants recommend that every two years the CAFD seek proposal from medical billing companies. Medical billing is a very competitive service and providers are anxious to keep current clients and obtain new clients; therefore, pricing can improve through the bidding process. A return of only 52% of billing submitted seems very low to other client’s studies.
EMS Responses by City/Town The chart below indicates where the EMS calls have originated by jurisdiction over the past three years:
Table 17: Calls by City - EMS only EMS Runs by City/Town 2011 2012 2013 Atkinson 2 Barnum 1 1 Bemidji 1 Blackhoff 1 2 Brevator 1 1 Brookston 54 40 47 Carlton 11 4 4 Cloquet 1,565 1,698 1,955 Coleraine 1 Cromwell 1 1 1 Culver 1 1 Duluth 1 4 3 Esko 122 113 132 Floodwood 10 3 10 Industrial (Township of) 1 Meadowlands 1 Moose Lake 1 Proctor 1 1 Prosit 1 Saginaw 15 5 Saginaw (RR name Grand Lake) 12 24 15 Sawyer 1 4 Scanlon 54 33 58 Wrenshall 1
McGrath Consulting Group, Inc. Page 83
EMS Runs by City/Town 2011 2012 2013 Thomson 3 Unknown 1 5 2 Total 1,853 1,939 2,239 * 2012 & 2013 reflect EMS data only
Recommendations – EMS System Oversight Consider incorporating paid-on-call EMTs into the current delivery of EMS services including, but not limited to, covering the ambulances during emergencies, and providing non-emergency transports. Priority 2
Consider developing programs and effective training within the district to foster better working relationships between the career personnel and the paid-on-call staff. Priority 1
Develop a schedule to provide for more paid-on-call participation during certain hours of coverage for Stations #2 and #3. Priority 2
Consider daytime manning of Station #2 as call volume dictates either through career personnel redistribution or through utilizing of paid-on-premise personnel. Priority 3 (Paid-on-premise will be discussed in the Staffing section)
Institute a policy to have the on-duty shift commander remain within the CAFD response area during his/her tour of duty. Priority 1
CAFD should seek proposal every two years from medical billing services in order to obtain the best price and service reimbursement as possible. Priority 1
McGrath Consulting Group, Inc. Page 84
Standards of Response Coverage The Commission on Fire Accreditation International (CFAI) defines standards of response coverage as being those adopted written policies and procedures that determine the distribution, concentration and reliability of fixed and mobile response forces for fire, emergency medical services, hazardous materials and other forces of technical response. CFAI uses the terms standards of response coverage and standards of coverage interchangeably throughout their description of the program. The consultants will discuss the CAFD and the factors involving what is referred to as community risk and all hazard risk potential as it relates to emergency response throughout the community.
Distribution Distribution: The locating of geographically distributed, first due resources, for all risk initial intervention. These station locations are needed to assure rapid deployment to minimize and mitigate average, routine emergencies. Distribution is measured by the percentage of the jurisdiction covered by the first-due units within adopted public policy response times.
Concentration Concentration: Is the spacing of multiple resources arranged (close enough together) so that an initial "effective response force" can be assembled on-scene within adopted public policy time frames? An initial effective response force is that which will most likely stop the escalation of the emergency for each risk type. Concentration is measured by risk type category - high-risk areas need second and third due units in shorter time frames than in typical or low risk areas.
Reliability Reliability – looks at actual incident history data to measure historical performance. How reliable is the response system, does the department frequently see multiple calls for service and do these degrade service? Are there predictable times of the day, week or year when queued calls occur? Can these occurrences be controlled or can peak hour staffing be used?
McGrath Consulting Group, Inc. Page 85
Standards of Coverage Overview Standards of response coverage are an integral part of strategic planning for fire protection. They are the allocation and distribution of resources to meet the goals and objectives of a community’s master fire protection plan.
Standards of Cover (SOC) also referred to as Standards of Response Coverage (SORC) or Deployment Analysis is a system for analyzing resource deployment, to determine whether a department is properly deployed to meet its community’s risks and expectations. Standards of Cover (SOC) is applicable to all fire departments and districts, career and volunteer, large and small. However, there is no 'one size fits all' SOC. The SOC must take into account factors unique to the community the department serves.
The SOC identifies agency-specific performance goals to which fire service leaders compare actual performance to measure the effectiveness of their fire department or district. The SOC process is not just about the number of fire stations and fire fighters, the SOC supports community and firefighter safety by identifying the number of personnel that should arrive at each risk type to safely and effectively accomplish the community’s objectives.
A small fire department or district’s SOC may be only a few pages in length, while a large department’s SOC can be upwards of one hundred pages. A well-written SOC should provide the authority having jurisdiction, fire chief, and members:
Defensible position related to strategic plan and future funding requests.
Defensible position related to adverse events and the criteria used to make your decisions.
A clear method to assess past, present, and future service delivery decisions.
McGrath Consulting Group, Inc. Page 86
Determining Your SOC Benchmarks The following agencies offer guidelines to help fire service leaders determine SOC performance benchmarks for their department or district.
National Fire Protection Association (NFPA) The CFAI draws many of their core competencies from portions of NFPA standards but unlike NFPA do not adopt the position of one-size fits all. The national/industry standards section of this report described the influence of NFPA standards.
NFPA 1720 would be the standards that would apply to the CAFD and could be helpful in establishing SOC benchmarks. National Fire Protection Association Standards 1720: Standards for the Organization and Deployment of Fire Suppression Operations, Emergency Medical Operations, and Special Operations to the Public by Volunteer Fire Departments – 2010 Edition
Commission on Fire Accreditation International (CFAI) The CFAI was discussed in the national/industry Standards section of this report; however, the standards of coverage concept is the 'core competency' in the self-assessment process that must be met for an agency to be accredited by the CFAI. CFAI employs a comprehensive approach to deployment analysis. In addition to considering travel time and distance, several other deployment factors are analyzed, such as call concurrency, risk assessment, and deployment based on getting enough resources to a given risk for an effective outcome. CFAI believes that a community should first determine the levels of service it wishes to provide and then develop standards of cover to provide that level of service.
Key Elements of a SOC Plan The key elements of a SOC plan are outlined below.
1. Overview - The study starts with a description of: (a) the community served, including demographics, geography, and specific unique community features; and (b) the agency,
McGrath Consulting Group, Inc. Page 87
including statutory authority, funding mechanisms, department history, and types of services provided.
2. Community outcome expectations - What does the community expect of the department? Has there ever been a discussion with the elected officials about what service goals the department ought to deliver and measure itself against?
3. Community risk assessment - This is a critical step in the SOC process. Response standards should be identified based on risk classification. The four classes are Low, Moderate, Significant, and Maximum risk:
Low risk: Areas zoned and used for agricultural purposes, open space, and other low intensity uses.
Moderate risk: Areas zoned for single family properties, small commercial and office uses, and equivalently sized business activities.
High risk: Business districts, high density residential, light industrial, and large mercantile centers.
Maximum risk: High rise, unprotected, residential and commercial properties, heavy industrial, and high life risk institutional properties.
Risks, other than fire are also considered, such as emergency medical service demand, technical rescue, transportation, natural hazards, weather, and others.
The goal is to determine the probability of an event and the potential consequences. The SOC process analyzes deployment based on the risk assessment. That is, how many people must arrive in what time frame, properly trained and equipped, to achieve the desired outcome?
4. Distribution study - This is the location geographically, of first-due resources, typically engines. These station locations are needed to assure rapid deployment to minimize and mitigate average, routine emergencies. Distribution is measured by the percentage of the jurisdiction covered by first-due units within the adopted response time benchmarks. A
McGrath Consulting Group, Inc. Page 88
distribution statement must have a percentage performance measure and a time measure and state a service level objective. Distribution is the strategic placement of available resources so that any hazards or risks, regarding life property and environment are covered appropriately.
o Example of a distribution statement: For 90% of all incidents, the first-due unit shall arrive within six minutes total response time. The first-due unit shall be capable of advancing the first line for fire control or starting rescue or providing Basic Life Support for medical incidents.
5. Concentration study - Concentration is the spacing of multiple resources arranged (close enough together) so that an initial "effective response force" can be assembled on-scene within adopted public policy time frames. An initial effective response force is that which will most likely stop the escalation of the emergency for each risk type. Concentration is measured by risk type category - high-risk areas need second and third due units in shorter time frames than in typical or low risk areas.
A concentration statement must have a percentage performance measure, time measure and state a service level objective. Example of a concentration statement: In a Moderate risk area, an initial effective response force shall arrive within 8 minutes travel or 10 minutes total response time, 90% of the time, and be able to provide 1,500gpm for firefighting, or be able to handle a five-patient emergency medical incident.
6. Historical response reliability - Response reliability is the probability, expressed as a percentage, that the required amount of staff and apparatus will be available when a fire or emergency call is receive, and how often these resources are at the station. There are times when a call is received when the first-due company is unavailable, requiring a later-due company to be assigned. Simultaneous calls for service (concurrency) is a problem for fire agencies of all sizes. Analysis of multiple call frequency can produce meaningful results. An agency’s deployment may look great for travel time on a map, yet be problematic due to simultaneous calls for service. Reliability looks at actual incident history data to measure historical performance. How reliable is the response system, does the department frequently
McGrath Consulting Group, Inc. Page 89
see multiple calls for service and do these degrade service? Are there predictable times of the day, week or year when queued calls occur? Can these occurrences be controlled or can peak hour staffing be used?
7. Historical response effectiveness - Response effectiveness is the percentage of compliance the existing system delivers. How well is the agency meeting the existing service objectives? If, for example, the current deployment is supposed to answer all calls within x minutes, y percent of the time, does it? If not, why not?
8. Overall evaluation - The first seven elements of the SOC are each a part of the deployment analysis. In this section, all the study parts are evaluated as a whole to determine if changes in deployment should be proposed. Proposed standards of cover statements by risk type are formed.
9. Goals and Objectives - These are the specific statements related to staffing, response times, and infrastructure developments which resulted from the deployment analysis. These goal statements and service level objectives must include:
Rationale for the goal. This includes reference to the national, regional, or local standards used to establish the goal, conformity to the risk assessment, and the supporting deployment analysis.
Estimated cost for implementation of the goal.
Time frame for implementation of the goal.
Method to measure the stated goal and/or objective.
The most advantageous part of working on the core competencies of the CFAI is the process not the results. Leadership of the service department will literally self-examine every aspect of their organization asking: what service do we provide, what is the cost of that service, should we be providing that service, is there a more cost-effective manner in providing our core services, and meet the three basis components of the SORC of distribution, concentration, and reliability?
McGrath Consulting Group, Inc. Page 90
SORC Integration with CAFD Standard of Response Coverage is determined by the community absent of any non-mandatory requirements and consists of the analysis of the components outlined above. What is particularly difficult for those who administer fire/EMS organizations is the absence of the second component detailed above – community outcome expectations. In most cases, those who govern and provide funding for fire departments concentrate on the fiscal aspects of providing that service.
Although this is an essential responsibility for those who govern, many do not articulate exactly what level of service they expect. What are acceptable response times? What level of fire/EMS service do they want to provide to the citizens? What non-emergency services can the fire department provide to the community? Thus, in many cases, the fire chiefs, not a unified team of governing officials and fire department leadership, determine the SORC for the community.
Governing boards/department officials are constantly faced with the issue that there are more good causes than tax dollars to provide those services. Therefore, they strive to provide as many services at the highest level with available dollars. Absent of “citizen outcry”, governing officials have little incentive or motivation to suddenly change service levels. Thus, fire and EMS services are a “quality of life” issue that must be determined by community/department leaders. The question that must be addressed is what level of risk to its residents is acceptable by those who govern the CAFD?
During the site visits by the consulting team, a close look and evaluation of the CAFD response areas were examined, visited, discussed with department personnel and viewed from a community risk analysis viewpoint. Potential risk hazard occupancies were discussed, evaluated, studied, with some particular sites actually visited by the consultants to better understand and assist in determining risk levels to the community. Discussions were carried out with the administrative staff officers including the Fire Chief and Battalion Chiefs to identify their own particular views and professional opinions on the risks they felt were of particular concern within the district.
McGrath Consulting Group, Inc. Page 91
It was through this evaluation process that the following occupancies/issues were identified as having a high risk potential to life safety concerns for the residents protected by the Cloquet Area Fire District:
SAPPI-South African Paper Products-including rail yard-chemical use/storage Match Mill-Incendiary U.S.G Ceiling tile factory-Largest wood-frame warehouse in the country Multiple Assisted living facilities Large quantities of crude oil passing through district-Railroad ill prepared Schools-Not adequately prepared for disasters River-Very limited training for water rescue emergencies High rise emergency preparedness lacking
As to evaluating the CAFD community’s risk level, it is the consultant’s opinion and concurrence that each of the identified areas listed above do in fact carry a higher level of risk within the community. In determining a fire department’s standard of response coverage-state of readiness, all aspects of this state of preparedness discussed within this section must be addressed and independently reviewed. With this in mind, the consulting team does have a heightened level of concern regarding these highlighted issues. Addressing each of these areas of concern would work to enhance and improve the state of preparedness and the ability of the CAFD to handle such major incidents.
Recommendations –Community Risk/Standards of Response Coverage The standards of response coverage is a worthwhile internal assessment to address the all hazard risk potential impacting the department. Within the next year the CAFD should utilize this tool in revising a strategic plan. Priority 3
All future capital expenditures should be evaluated against the SORC distribution, concentration, and reliability criteria. Priority 5
McGrath Consulting Group, Inc. Page 92
National/Industry Standards The CAFD has standards (some mandatory and some advisory) which impacts how they provide fire and EMS. This section will address the federal and state codes and standards which apply to CAFD as well as appropriate industry standards.
National Fire Protection Association (NFPA) Non-mandatory The National Fire Protection Association creates and maintains private, copyrighted, standards and codes for usage and adoption by local governments. NFPA was formed in 1896 by a group of insurance firms; their mission was to reduce the worldwide burden of fire and other hazards on the quality of life by providing and advocating consensus codes, and standards, research, training, and education. Today NFPA members include more than 70,000 individuals representing nearly 100 nations.
The first fire department to be represented in the NFPA was the New York City Fire Department in 1905. Today, the NFPA includes representatives from some fire departments, many fire insurance companies, many manufacturing associations, some trade unions, many trade associations, and engineering associations.
NFPA is responsible for 300 codes and standards that are designed to minimize the risk and effects of fire by establishing criteria for building, processing, design, service, and installation all over the world. It’s more than 200 technical codes and standards development committees are comprised of over 6,000 volunteer seats. Source: NFPA website/overview
There is much disagreement as to the meaning of the words “codes and standards”. NFPA defines a standard as:
A document, the main text of which contains only mandatory provisions using the word “shall” to indicate requirements and which is in a form generally suitable for mandatory reference by another standard or code or for adoption into law. Non-
McGrath Consulting Group, Inc. Page 93
mandatory provisions are not to be considered a part of the requirements of a standard and shall be located in an appendix, annex, footnote, informational note, or other means as permitted in the Manual of Style for NFPA Technical Committee Documents.
NFPA defines a code as: A standard that is an extensive compilation of provisions covering broad subject matter or that is suitable for adoption into law independently of other codes and standards.
Source: NFPA Glossary of Terms 2013 edition
If one were accepting the NFPA definition, it would appear that all standards listed in any NFPA code other than in the appendixes, are in fact mandatory. Such would be the case if a governing body were to adopt the code in which the standard is listed. However, governing bodies are not required to adopt the NFPA codes; whereas, many view the NFPA terms codes and standards as a benchmark by which to judge against.
The understanding of the significances of NFPA codes and standards becomes more complicated in the event in which a firefighter might be seriously injured or killed in the line of duty. In these events, NFPA codes have the effect of a double-edged sword; the fire department is not required to meet them, but the fire department would most likely be judged against these standards by a host of investigating agencies.
Therefore, it is advantageous for everyone in a decision-making position to be familiar with NFPA codes and standards. Leadership’s decisions pertaining to resources and the deployment of those resources should be based on knowledge of current industry standards as outlined by NFPA.
NFPA 1710 or NFPA 1720 NFPA adopted two standards addressing fire department organization and development: NFPA 1710 (Organization and Development of Fire Suppression, Emergency Medical Operations, and Special Operations to the Public by Career Fire Departments), and a sister standard NFPA 1720
McGrath Consulting Group, Inc. Page 94
(Organization and Development of Fire Suppression, Emergency Medical Operations, and Special Operations to the Public by Volunteer/Paid-On-Call Fire Departments).
If a department’s employees are both career and paid-on-call, they are classified as a “combination fire department”. NFPA’s definition is: Combination Fire Department – a fire department having emergency service personnel comprising of less than 85% majority of either volunteer or career membership.
The table below illustrates the category of employees, number of employees in each category, and the percent they represent of total employees in the CAFD:
Table 18: CAFD Employees Category Employee Type # of % of Total Career 23 38.98% Volunteers 36 61.02% Total 59 100%
The CAFD clearly falls into the combination category because neither career nor paid-on-call reach the 85% threshold. The question then becomes which of the two NFPA codes (1710 or 1720) should apply to the CAFD?
According to the Staffing for Adequate Fire & Emergency Response (SAFER) grant program within Federal Emergency Management Agency (FEMA) indicates the Authority Having Jurisdiction (AHJ) has the power to decide which standard the department should utilize. Therefore, in this case the fire department board needs to identify which of the two standards they believe applies.
This might be disputed by members who were on the Cloquet Fire Department prior to the consolidation, inasmuch prior to the consolidation the Cloquet Fire Department was an all career department and would fall under the NFPA 1710 standard. However, today as a combination department they would fall under the NFPA 1720 standard.
McGrath Consulting Group, Inc. Page 95
Why Does It Matter Which NFPA Code Although NFPA 1720 is very comprehensive, it is not as stringent as NFPA 1710. The consultants recommend that the department does not adopt either code; rather they should attempt to meet as many of the NFPA 1720 standards as feasibly and fiscally possible. It is recommended the AHJ would choose (not adopt) NFPA 1720. Taking the NFPA 1720 standards under advisement should not change the current operations of the department and the board should not diminish the current service level. The advantage to NFPA 1720 applies more to the rural areas the department provides services for. What the department cannot do is switch between the two standards to choose which is best at any given moment.
Suppression Staffing and Response NFPA 1720 Standard The table below is also discussed in the ISO 4.3 Staffing and Deployment section of this report. Under NFPA 1720, the number of responding firefighters and the amount of time in which they are required to respond varies with the number of people (population) per square mile to eight mile radius as illustrated in the table below:
Table 19: NFPA 1720: 4.3.2 Staffing and Response Time Demand Minimum Staff to Response Time Meet Objective Zone (a) Demographics Respond (b) (Minutes) (c) (%) Urban >1,000/mi2 15 9 90 Suburban 500-1,000/mi2 10 10 80 Rural <500/mi2 6 14 80 Related to Travel 90 Remote > 8 miles 4 Distance Special Risk AHJ* AHJ* AHJ* 90 * Determined by Authority Having Jurisdiction (AHJ) a) A jurisdiction can have more than one demand zone b) Minimum staffing includes members responding from the AHJ’s department and automatic aid c) Response time begins upon completion of the dispatch notification and ends at the time interval shown in the table.
For example, if the fixed population is 500 to 1,000 people within one square mile the department must respond with a minimum of ten firefighters within ten minutes 80% of the time. This is considerably less stringent the NFPA 1710 requirement for the same criteria of 14
McGrath Consulting Group, Inc. Page 96
firefighters (one additional if the aerial is utilized) within a five minute response from the time of notification by dispatch 90% of the time.
NFPA 1720 Special Interest The NFPA 1720 standard is very comprehensive and those who govern and lead the fire department should be familiar with the components of this document; it is less stringent than NFPA 1710. What should be of special interest to the department is Chapter 4 of NFPA 1720:
Chapter 4 Organization, Operation, and Deployment 4.1 Fire Suppression Organization 4.2 Community Risk Management 4.3 Staffing and Deployment 4.4 Reporting Requirements 4.5 Fire Suppression Operations 4.6 Initial Fire-Fighting Operations 4.7 Sustained Fire-Fighting Operations 4.8 Intercommunity Organization 4.9 Emergency Medical Services (EMS) 4.10 Special Operations
4.3 Staffing and Deployment 4.3.1. The fire department shall identify minimum staffing requirements to ensure that a sufficient number of members are available to operate safely and effectively.
4.3.2* The table (below) shall be used by the AHJ to determine staffing and response time objectives for structural firefighting, based on a low-hazard occupancy such as a 2,000 ft² two- story, single family home without basement and exposures and the percentage accomplishment of those objectives for reporting purposes as required in 4.4.2. (reference to previous table).
At one time, the only staffing and response time requirements pertaining to volunteer and paid- on-call departments were as follows:
McGrath Consulting Group, Inc. Page 97
Upon assembling the necessary resources at the emergency scene, the fire department shall have the capability to safely commence an initial attack within two minutes 90 percent of the time.
Today departments qualifying under NFPA 1720 must comply with staffing and response times as illustrated in the table above.
4.4 Annual Evaluation 4.4.2.1. The fire department shall evaluate its level of service, deployment delivery, and response time objectives on an annual basis.
4.4.2.2. The evaluation shall be based on data relating to level of service deployment, and the achievement of each response time objective in each demand zone within the jurisdiction of the fire department.
Quadrennial Report 4.4.3 Quadrennial Report. The fire department shall provide the Authority Having Jurisdiction (AHJ) with a written report, quadrennially, which shall be based on the annual evaluation required by 4.4.2.
4.4.3.2 This report shall explain the predictable consequences of identified deficiencies and address the steps within a fire department’s strategic plan necessary to achieve compliance.
Fire Suppression Operations NFPA 1720 is much less stringent than NFPA 1710 (career departments), which specifies how many individuals must be on the emergency scene to begin an interior fire attack. However, the following standards do apply to volunteer and paid-on-call departments:
4.5.1 Incident commander. One individual shall be assigned as the incident commander.
McGrath Consulting Group, Inc. Page 98
4.5.1.2 The incident commander shall be responsible for the overall coordination and direction of all activities for the duration of the incident.
4.6.1 Initial firefighting operations shall be organized to ensure that at least four members are assembled before interior fire suppression operations are initiated in a hazardous area.
4.6.3 Outside the hazardous area, a minimum of two members shall be present for assistance or rescue of the team operating in the hazardous area.
4.6.4 Initial attack operations shall be organized to ensure that if, upon arrival at the emergency scene, initial attack personnel find an imminent life-threading situation where immediate action could prevent the loss of life or serious injury, such action is permitted with less than four personnel when conducted in accordance with NFPA 1500.
4.7.1 The fire department shall have the capability for sustained operations, including fire suppression; engagement in search and rescue, forcible entry, ventilation, and preservation of property; accountability for personnel; the deployment of dedicated rapid intervention crew (RIC); and provision of support activities for those situations that are beyond the capability of the initial attack.
It is important to re-emphasize that NFPA standards are just that, “standards,” and not mandatory by law for a fire department to meet. However, once an incident occurs, the department will be judged on its performance as compared with the NFPA standards. It is not recommended that any department intentionally disregard these NFPA standards; rather, a department should work to meet them.
Occupational Safety and Health Administration (OSHA) Mandatory OSHA states that “once fire fighters begin the interior attack on an interior structural fire, the atmosphere is assumed to be “immediately dangerous to life or health” (IDLH) and section (g)
McGrath Consulting Group, Inc. Page 99
(4) of OSHA’s Respiratory Protection Standard, 29, CFR 1910.134 [two-in/two-out] applies.” OSHA defines interior structural firefighting “as the physical activity of fire suppression, rescue, or both inside of buildings or enclosed structures which are involved in a fire situation beyond the incipient stage.” This rule is commonly referred to as the “two-in/two-out” rule, which is OSHA’s mandatory requirement for interior firefighting.
OSHA requires that all fire fighters engaged in interior structural firefighting must wear SCBAs. SCBAs must be NIOSH-certified, positive pressure, with a minimum duration of 30 minutes. [29 CFR 1910.156(f) (1) (ii)] and [29 CFR 1910.134(g) (4) (iii)]
OSHA requires that all workers engaged in interior structural firefighting operations beyond the incipient stage use SCBA and work in teams of two or more. [29 CFR 1910.134(g) (4) (I)] Fire fighters operating in the interior of the structure must operate in a buddy system and maintain voice or visual contact with one another at all times. This assists in assuring accountability within the team. [29 CFR 1910.134(g) (4) (I)]
OSHA requires at least one team of two or more properly equipped and trained fire fighters are present outside the structure before any team(s) of fire fighters enters the structural fire. This requirement is intended to assure that the team outside the structure has the training, clothing, and equipment to protect them and, if necessary, safely and effectively rescue fire fighters inside the structure. For high-rise operations, the team(s) would be staged below the IDLH atmosphere. [29 CFR 1910.134(g) (3) (iii)]
OSHA requires that one of the two outside person's function is to account for and, if necessary, initiate a fire fighter rescue. Aside from this individual dedicated to tracking interior personnel, the other designated person(s) is permitted to take on other roles, such as incident commander in charge of the emergency incident, safety officer, or equipment operator. However, the other designated outside person(s) cannot be assigned tasks that are critical to the safety and health of any other employee working at the incident.
McGrath Consulting Group, Inc. Page 100
Any task that the outside fire fighter(s) performs while in standby rescue status must not interfere with the responsibility to account for those individuals in the hazard area. Any task, evolution, duty, or function being performed by the standby individual(s) must be such that the work can be abandoned, without placing any employee at additional risk, if rescue or other assistance is needed. [29 CFR 1910.134(g) (4) (Note 1)] Any entry into an interior structural fire beyond the incipient stage, regardless of the reason, must be made in teams of two or more individuals. [29 CFR 1910.134(g) (4) (I)].
Insurance Service Offices, Inc. (ISO) Non-mandatory Insurance Services Office (ISO) – ISO is a leading source of information about property casualty insurance risk that provides risk information to many industries, including government. The ISO Public Protection Classification program is designed to help establish fire insurance premiums for residential and commercial properties based in part on a community’s fire protection services.
Although the primary purpose of this tool is to rate fire protection from which insurance rates can be established, ISO ratings have been one of the few benchmarks to compare community fire protection. Realizing the true intent of the ISO classification, it should not be the sole determining factor in establishing public fire protection. Rather, the schedule should be considered an instrument for comparison and an additional factor from which to make a decision.
ISO Changes ISO filed a proposed revised schedule in December 2012 with changes that focus on areas that have a proven effect on fire suppression and prevention, as well as revisions that align the schedule’s requirements with those of nationally accepted standards. In January 2013 they have filed revisions both to modernize and enhance its Fire Suppression Rating Schedule (FSRS). The schedule revisions would recognize proactive efforts to reduce fire risk and frequency.
As of July 1, 2013 any community being evaluated by ISO will be graded on the revised FSRS. These changes are also incorporated in the Public Protection Classification (PPC). This applies
McGrath Consulting Group, Inc. Page 101
to cities, towns, villages, fire protection districts, and other graded areas that are evaluated based on the major elements of their fire suppression system.
The revised FSRS makes increased reference to the national consensus standards of the National Fire Protection Association (NFPA), American Water Works Association (AWWA), and Association of Public-Safety Communications Officials International (APCO). Using feedback from those organizations and many other industry associations, ISO revised its PPC evaluation to make it more accurately reflect modern fire prevention and suppression capabilities. By incorporating more direct references to national consensus standards, ISO is reinforcing that it doesn’t just write standards but uses recognized fire suppression and prevention practices as the basis for the PPC evaluations.
The new schedule continues to evaluate three major categories of fire suppression: fire department, emergency communications, and water supply. In addition, it includes a new Community Risk Reduction section that recognizes community efforts to reduce losses through fire prevention, public fire safety education, and fire investigation. The addition of the new risk reduction section represents a major shift in emphasis in the FSRS, giving incentives to communities that strive to reduce fire severity proactively through a structured program of fire prevention activities. Examples of fire prevention programs include wild land-urban interface ordinances, certificate of occupancy inspections, and inspections of fire prevention equipment.
“The revised FSRS continues to provide incentives to communities to strengthen their public fire prevention programs. The revision reflects current trends in fire protection, credits a community’s fire prevention and fire protection capabilities in a measured, analytical way, and improves the predictive nature of the evaluation process” (Source: ISO web site).
There has been growing involvement in community efforts to limit losses before they happen, led largely by fire departments and their personnel. It is not easy to quantify the efforts made toward fire prevention and fire safety education, but there is enough anecdotal evidence to
McGrath Consulting Group, Inc. Page 102
indicate that the more done to prevent a fire, the less likely a fire will happen or that it will be a major event.
The following are samples of the FSRS revisions:
Fire Department Section The fire department section recognizes fire departments use various methods to solve the critical issues of economic constraints as it relates to recruitment and retention. One way that ISO addressed this is through enhanced recognition for automatic-aid, personnel, and equipment. This includes an increase in the factors relating to automatic-aid for fire departments that operate with common fire ground procedures. In addition, ISO now offers credit to fire departments that develop and use standard operating procedures and incident management systems. ISO, based on NFPA 1710, also considers a fire department’s deployment analysis as a potential alternative to ISO’s traditional road-mile distribution study. That study established optimal distances for standard response districts around each fire station — 1.5 road miles for an engine company and 2.5 road miles for a ladder service company. In conjunction with that change, ISO shifted emphasis from the number of apparatus and equipment carried, to the proper deployment of those resources by adjusting point totals for the relevant sections.
ISO modified its apparatus equipment lists to include only items specified in NFPA 1901. That change will more closely align the schedule with consensus standards and allow additional flexibility to revise ISO lists if there are significant changes to NFPA 1901.
Many other areas of the fire department evaluation make increased reference to consensus standards, particularly in fire department training, where credit will now be available for officer certification. The evaluation of pre-incident planning is now based on annual rather than semiannual inspections.
Some of the changes directly affect the minimum facilities evaluated by the FSRS. By referencing NFPA 1901, ISO increased minimum pump capacities for apparatus needed
McGrath Consulting Group, Inc. Page 103
to qualify for minimal recognition under Class 9 and separately for Classes 1 through 8B to follow NFPA requirements more closely. ISO also placed additional emphasis on firefighter safety, such as personal protective equipment and increased recognition for driver/operator training, with the realization that personnel can carry out successful fire suppression operations only if they are able to avoid accidents and injury.
Emergency Communications Section One of the most rapidly changing areas in fire suppression has been in communications. The revised FSRS — referencing APCO standards — reflects current technology by incorporating major revisions to this section, with a pronounced shift in emphasis from hardware, such as phone lines and radio equipment, to a more performance-oriented evaluation. The element of time is critical in allowing firefighters to attack a fire in its early stages, and the revised schedule places greater value on a communication center’s ability to answer and process emergency calls in time frames specified by the NFPA. ISO also eliminated evaluation of phone lines and phone listings; instead, it considers enhanced 911, wireless technology, VOIP, CAD, and GIS capabilities.
Water Supply Section In the water supply section, the FSRS now includes specific credit for communities, water utilities, or fire departments that enhance their understanding of a water system through periodic fire hydrant flow testing that meets NFPA and AWWA standards. The revised schedule also includes additional credit for flow through a single hydrant from a maximum of 1,000 gpm to 1,500 gpm, in accordance with AWWA.
Credit Point Changes While the total credit points for the existing major categories remain unchanged, ISO increased or decreased the point weights for some sections. The total credit points still are: Emergency Communications (formerly “Fire Alarm”): 10 points Fire Department: 50+ points
McGrath Consulting Group, Inc. Page 104
Water Supply: 40 points
The community risk reduction section has a weight of 5.5 points, resulting in a revised 105.5+ available points. The inclusion of the new section with its extra points allows recognition of communities that include effective fire prevention practices without applying undue penalty for those that have not yet adopted such measures.
An important change throughout the revised FSRS is the way ISO credits record keeping. When no documentation exists to substantiate an item under review, ISO will not give credit for the section unless otherwise stated in the schedule. That means essentially a “no records, no credit” approach. ISO also established a new limit of 75% of the credit points possible when only partial documentation of an item exists. ISO implemented those changes to emphasize the importance of proper record keeping.
Ongoing Evaluation The revised FSRS was an effort that took several years and involved a variety of stakeholders in organizations that deal with water, fire, and emergency communications; federal, state, and local officials; insurance regulators; and insurers from across the country. But the introduction of the revised schedule is only the beginning and will not be a once-in-a-lifetime event. ISO is making a commitment to refine and revise the FSRS every three to five years. During that period, ISO will collect data regarding the relationships between the items in the schedule and their effect on fire loss. An evaluation of a community’s firefighting ability is an ongoing process.
“ISO top insurer customers continue to tell states that the FSRS and PPC program help them predict loss and underwrite more accurately. Statistical data on insurance losses demonstrates the relationship between better fire protection and lower fire losses. By securing lower fire insurance premiums for communities with better fire protection, ISO programs provide incentives for communities that choose to improve their firefighting services.” (Source: ISO web site)
McGrath Consulting Group, Inc. Page 105
ISO Point Scale In review, ISO evaluates fire departments on a 100 point scale into three categories: 10% Receiving and Handling Fire Alarms (Dispatch) 50% Fire Department 40% Water Supply
The best rating is a Public Protection Classification (PPC) of 1 and the lowest is 10 as illustrated in the table below:
Table 20: ISO PPC Point Scale PPC Points 1 90.00 or more 2 80.00 to 89.99 3 70.00 to 79.99 4 60.00 to 69.99 5 50.00 to 59.99 6 40.00 to 49.99 7 30.00 to 39.99 8 20.00 to 29.99 9 10.00 to 19.99 10 0.00 to 9.99
Cloquet Area Fire District ISO Classification The actual ISO Public Protection Classification document for CAFD indicated the ISO survey occurred in May 2011 and published in January 2012 to become effective in April 1, 2012. The CAFD board received two classifications: one for hydranted areas; another for the non-hydranted areas which was subdivided into two classes depending on distance if the property is beyond five road miles from the fire station as illustrated in the table below:
Table 21: CAFD ISO Classifications Area % of Total ISO Class Hydranted 67.66% 4 Non-hydranted < 5 miles 42.17% 6 Non-hydranted > 5 miles < 10% 10
McGrath Consulting Group, Inc. Page 106
The table below illustrates the number of departments in Minnesota holding PPC classifications; the highlighted blue line illustrates the number and percentage of departments nationally and in Minnesota that have a Class 4 rating as of 2014.
Table 22: National & Minnesota ISO Classes 2013 National % of Total Minnesota % of Total Class 1 60 0.10% 0 0.00% Class 2 750 1.50% 0 0.00% Class 3 2,410 4.90% 54 2.40% Class 4 5,216 10.60% 124 5.50% Class 5 8,722 17.80% 196 8.70% Class 6 9,026 18.40% 267 11.85% Class 7 5,708 11.60% 345 15.31% Class 8 1,836 3.70% 126 5.59% Class 8B 1,111 2.30% 133 5.90% Class 9 12,437 25.40% 820 36.38% Class 10 1,734 3.50% 189 8.39% Total 49,010 100% 2,254 100%
The figures below illustrate the ISO Classes - National:
Figure 13: ISO Department Class - National
14,000
12,000
10,000
8,000
6,000
4,000
2,000
0 Class Class Class Class Class Class Class Class Class Class Class 1 2 3 4 5 6 7 8 8B 9 10 # of Departments 60 750 2,410 5,216 8,722 9,026 5,708 1,836 1,111 12,437 1,734
McGrath Consulting Group, Inc. Page 107
The figure below illustrates the ISO Classes – Minnesota
Figure 14: ISO Department Class for Minnesota
14000
12000
10000
8000
6000
4000
2000
0 Class Class Class Class Class Class Class Class Class Class Class 1 2 3 4 5 6 7 8 8B 9 10 National 60 750 2,410 5,216 8,722 9,026 5,708 1,836 1,111 12,437 1,734 % of Total 0.10% 1.50% 4.90% 10.60% 17.80% 18.40% 11.60% 3.70% 2.30% 25.40% 3.50%
The explanation of points awarded in each of the categories for the Class 4 is illustrated in the table below:
Table 23: CAFD ISO Points Each Category of Survey Feature Credit Given Maximum Credit Receiving & Handling Fire Alarms Credit for Telephone Service 1.80 2 Credit for Operators 1.32 3 Credit for Dispatch Circuits 1.80 5 Credit Received 4.92 10
Fire Department Credit for Engine Companies 7.63 10 Credit for Reserve Pumpers 0.76 1 Credit for Pumper Capacity 5.00 5 Credit for Ladder Service 4.52 5 Credit for Reserve Ladder & Service Trucks 0.30 1 Credit for Distribution 2.55 4 Credit for Company Personnel+ 6.18 15+ Credit for Training 5.38 9 Credit Received 32.32 50
McGrath Consulting Group, Inc. Page 108
Feature Credit Given Maximum Credit
Water Supply Credit for Supply System 31.34 35 Credit for Hydrants 1.68 2 Credit for Inspection & Condition 1.96 3 Credit Received 34.98 40
Divergence* -4.56 Total Credit 75.57 105.5 + Credit is open-ended with no maximum
* Divergence is a reduction in points if the fire department and water-supply scores are out of line with each other.
Center for Public Safety Excellence (CPSE) Non-mandatory A better evaluation tool exists today. The International Fire Chief’s Association (IFCA) has developed a program called the Center for Public Safety Excellence (CPSE), formerly the Commission of Fire Accreditation International (CFAI). The Center for Public Safety Excellence measures the quality and performance of a particular fire service agency and will award national accreditation to those departments that pass the stringent criteria.
Any future effort by the CAFD to demonstrate competencies should be channeled towards the CPSE accreditation. The consultants do not recommend that the department, at this time, attempt to become accredited; rather, they should use the CPSE standards as the benchmark of quality. The department has abundant opportunities to channel their efforts into better documentation, which is essential in any accreditation process.
Although an essential responsibility for those who govern is to identify community outcome expectations, many do not articulate exactly what level of service they expect. What are acceptable response times? What level of fire service do they want to provide to the citizens? What non-emergency services can the fire department provide to the community? Thus, in many cases, the fire chiefs, not a unified team of governing officials and fire department leadership,
McGrath Consulting Group, Inc. Page 109
determine the Standard of Response Coverage (SORC) for the community. This is not the case however for the CAFD board who is very involved in setting their expectations.
Governing boards/department officials are constantly faced with the issue that there are more good causes than tax dollars to provide those services. Therefore, they strive to provide as many services at the highest level with available dollars. Absent of “citizen outcry”, governing officials have little incentive or motivation to suddenly change service levels. Thus, fire and EMS services are a “quality of life” issue that must be determined by community/department leaders.
CPSE accreditation is a structured process for documenting the levels of fire safety, prevention, fire safety education, suppression services currently provided, and for determining the future level of service the department should provide. CPSE accreditation asks the department to determine and document if its fire protection services are appropriate, adequate, and effective.
The advantage to the CPSE program lies in the process of completing it. The department must literally examine every aspect of its existence and determine the most cost-effective means of providing service. This program requires a significant time commitment and effort on the part of the fire administration.
Critics of the program emphasize the cost and time commitment needed for completion. These critics miss the point that the process of compliance with CPSE standards may keep the department from catastrophic failure in the system of service delivery. Other critics claim it is nothing more than bragging rights, similar to an improved ISO classification. Again, the point is missed that a department that develops pride can often translate that pride into better performance and morale, which is priceless.
Some fire departments have incorporated student interns from schools such as Oklahoma State University, which has one of the leading Fire Protection Safety Engineering Technology programs in the country, to assist the department in the accreditation process. These students
McGrath Consulting Group, Inc. Page 110
usually work 8 – 12 weeks during the summer and live in the fire station, responding to calls for experience. The students receive compensation that has been negotiated with the department. Other students who have graduated from this program are often available to oversee and participate in the entire process, which can easily take 12 – 18 months. If the fire department board determines that CPSE accreditation should be undertaken at some point in the future, the consultants recommend hiring a student intern to assist on the project.
Recommendations – National/Industry Standards The CAFD is classified as a “combination” department and therefore, the Authority Having Jurisdiction can choose to use either NFPA 1710 or NFPA 1720 as the benchmark for quality. The consultants recommend aligning with NFPA 1720. Priority 1
The fire department should not adopt either NFPA standard. Adoption would include the adoption of all OSHA and NFPA standards by reference. However, a plan should be developed to meet as many NFPA 1720 standards as possible in the future. Priority 2
The fire department leadership must ensure that the OSHA “two-in/two-out” rule is practiced on all structure fires. Priority 1
An ISO Class 4 is an excellent insurance classification and the consultants question the advantage of investing more resources solely for the purpose of attempting to improve to a Class 3 department. Priority 5
The fire department should not seek international accreditation (CPSE) at this time; rather it should allow the new fire chief to establish his/her strategic initiatives and concentrate effort on better documentation. The CPSE can be used as a guide in reviewing department operations and the types of documentation needed. Priority 5
McGrath Consulting Group, Inc. Page 111
Staffing At the heart of most studies is the future staffing methodology and their associated costs. The largest line item in most district’s budgets pertain to personnel costs. Fire chiefs and firefighters of all ranks normally want to increase the number of fire department staff in order to better serve the citizens. An increase in staff results in more firefighting personnel being available to respond to emergencies within the community. Larger staffing levels could equate to a greater margin of safety for both the citizens of the community and the firefighters and well as faster mitigation times resulting in diminished losses.
On the other side of the equation is the factor of what the district can afford. Hiring additional firefighting personnel is expensive and normally the large ticket item within the district’s budget. Certainly during difficult fiscal times, such as those facing government at all levels today, the lines between wants, needs, and ability to pay become blurred and emotions easily can create an unpleasant environment in which individuals/groups choose sides on the issue. In reality, all sides want the highest level of protection for their citizens and employees – achieving the balance is the issue.
There are a total of 59 personnel listed as members of the CAFD as illustrated in the table below:
Table 24: CAFD Staffing Methodology Staffing Method # of % of Total Career 23 38.98% Paid-On-Call 33 55.93% Part-time 3 5.08% Total 59 100%
Types of Staffing Methodologies Most businesses purchase insurance to cover their facilities (property) and belongings (contents). Many businesses also purchase a business interruption policy. Businesses do this to ensure that a devastating fire will not result in the business failing; the policy provides income until they are able to recover from the loss. Unlike business, government cannot purchase business
McGrath Consulting Group, Inc. Page 112
interruption insurance; therefore, most communities invest in their fire departments to ensure the continued flow of tax dollars that provide the essential services for the citizens as well as the businesses in the community in addition to providing life safety to their citizens. The CAFD Board is responsible for ensuring that protective services are adequate for citizens and businesses.
While the CAFD currently utilizes a combination staffing model, the consultants will briefly address each types of staffing methodology and options that could be utilized in the future by the district.
Career Shift Employees Career shift staffing ensures a certain level of immediate initial response for the emergency incident. Although both career and paid-on-call/volunteer employees are professionals, the time dedicated to the profession within each of the two categories of employees suggests that career employees should be better trained and perform at a higher level than paid-on-call/volunteer employees. Again, this is not derogatory towards paid-on-call/volunteer personnel; rather, being on-duty for extended periods of time provides career employees the opportunity to train when not involved in emergency or other assigned duties.
Conventional wisdom suggests that having on-duty personnel will improve response time by allowing emergency apparatus the ability to respond more quickly; it eliminates the time spent waiting for off-duty personnel to arrive at the fire station. Career employees add a degree of safety to the emergency team inasmuch as the individuals work and live with each other and have a greater opportunity to develop a team environment, which is especially valuable on the emergency scene. Career employees are often more involved in the daily activities of the fire department and can usually handle a variety of duties not suited for part-time or paid-on-call volunteer employees.
Having career personnel on duty on a daily basis allows the fire chief to develop strategic plans as to how emergency incidents will be handled with known, available resources. This staffing
McGrath Consulting Group, Inc. Page 113
model ensures that a district will be able to immediately respond with a known quantity of personnel and equipment to a reported emergency situation. In addition, a known (assigned) number of personnel will staff each piece of apparatus.
A common concern with career staffing is that the twenty-four hour shift schedule is inefficient and antiquated. Perhaps the most common staffing of career employees is a three shift scenario, in which an employee works twenty-four hours on duty followed by forty-eight hours off duty (there are variations to 24/48 schedules). The twenty-four hour shift schedule results in each shift being assigned to work an average of 10.17 days per month, excluding any additional time off for vacation, sick, etc.
To understand why the twenty-four hour schedule has evolved, one must understand the economy the twenty-four hour shift brings in terms of affordability (not necessarily productivity, but costs). If one were to magically convert the twenty-four hour employees to an eight-hour per day schedule while maintaining the same staffing level, the number of employees would be forty percent higher.
Paid-On-Call/Volunteer Employees It is important to make a distinction between volunteer and paid-on-call members. Although both are comprised of individuals who are highly dedicated and professional, the difference lies in the fact that a true volunteer member does not receive any monetary reimbursement; whereas paid-on-call members receive compensation most often on an hourly basis or per-call basis (stipend). As such, paid-on-call members could be considered employees of the district and subject to the requirements of federal wage and hour regulations. Although the district/department refers to its members as volunteers, they technically are paid-on-call members.
Volunteer/paid-on-call fire departments have been an intricate part of the fire service in the United States for over 300 years. The key to success using this methodology is directly related to the ability to find dedicated individuals who have the desire and time to become proficient in
McGrath Consulting Group, Inc. Page 114
the delivery of critical firefighting and other lifesaving services. Although many principles and concepts are similar in career and volunteer departments, other aspects differ – particularly as they relate to response times, personnel, and program management.
The economics of volunteer/paid-on-call firefighters is the number one reason some communities embrace this type of organization. District boards are faced with maintaining or increasing public safety services while revenues remain stagnate or diminish. With that said, one must not assume that volunteer organizations are free.
Volunteer organizations are built on four basic premises – pride, exclusivity, influence, and competition. The early volunteer organization had a tremendous amount of pride in the service it provided. It was exclusive in that only a few were allowed to join. It had tremendous influence, particularly in local political issues and elections. As a result of volunteer fire departments “springing up” (often next door to one another), these organizations were in competition with one another – primarily because of the number of volunteer companies in many communities and the lack of coordination among them.
The volunteer/paid-on-call organizations face many challenges not found – or at least not emphasized – in the career organization. Volunteer/paid-on-call organizations must spend considerable time and effort in recruiting and maintaining its memberships. The recruitment process must become one of “salesmanship.” Thus, organizational principles such as hierarchy, unity of command, and span of control are placed on the back burner, while human relations and motivations are emphasized. Once individual needs have been met and the volunteer is a part of the organization, then organizational principles are taught and applied.
Managing volunteer/paid-on-call members is every bit as difficult as managing career employees – perhaps more so. One must not forget that an essential aspect of management involves responsibility, whether the department is a volunteer, combination, or career department. These responsibilities include budget, discipline, legal compliance, planning, delegating, establishment of policies and procedures, adequate service delivery, etc.
McGrath Consulting Group, Inc. Page 115
Fire chiefs of volunteer/paid-on-call departments must meet the needs of their members. Most firefighters do not join and remain members of volunteer/paid-on-call departments for monetary reasons. The reasons often range from a sense of community to the recognition of being a firefighter. The fire chief must recognize these needs; find a compromise between members’ conflicting needs; and search for a way that the organization can meet individual needs. The chief must also recognize when these methods need to change so the organization can retain members while remaining within budgetary guidelines.
Volunteer/paid-on-call staffing presents several challenges. Organizing members into functional companies becomes difficult due to the uncertainty of who will be able to respond to various alarms. On the emergency scene, unity of command and span of control become difficult to establish and maintain. This task is much different and far more challenging than in an organization that relies on career personnel, who are assigned to regular shifts and working hours.
Volunteer/paid-on-call organizations tend to operate in a more informal manner than career or combination organizations. While this approach often seems to work quite well, it is not always the most efficient. The district could find it more difficult to control or set performance expectations for a volunteer organization due to its perceived lack of direct control.
Volunteer/paid-on-call departments have a tendency to recruit members with very similar backgrounds and values as the existing membership. Diversity is a major challenge in volunteer/paid-on-call departments. Without this diverse pool of individuals, the basic operation and maintenance of the department and equipment might depend on a chosen few or in some cases not be accomplished at all.
Although the consultants have described challenges with paid-on-call staffing methodology, they highly recommend continuation of this staffing method until which time the call volume exceeds the capabilities of the paid-on-call members’ ability to devote the time needed. Although there
McGrath Consulting Group, Inc. Page 116
are advantages to career staffing, this staffing methodology is associated with a whole new set of challenges. Currently, ISO grades a department on its staffing by requiring three volunteer/paid- on-call members to be the equivalent of one career employee.
Paid-On-Premise (Part-time) Employees Paid-on-premise (POP) employees, also known as part-time employees, have been found to be a highly successful method of staffing in areas that have a number of career departments in close proximity. Utilizing this scenario, the community would hire individuals that were already certified firefighters/EMTs on a part-time basis to either fully staff or augment shifts. Part-time personnel usually work twelve-hour blocks a few days per pay cycle or month. This could result in a significant reduction of salaries and avoidance of future pension liability for the district versus hiring its own career employees.
There are both advantages and disadvantages to paid-on-premise employees. However, the consultants are finding more departments utilizing this staffing method due to the significant cost savings of a part-time employee over a full-time employee. There are departments that utilize paid-on-premise personnel to staff their stations 24/7. Although paid-on-premise staffing is highly discouraged by the International Association of Fire Fighters (IAFF) to its members, in a growing number of areas in the United States there seems to be no lack of participants – both union and non-union firefighters - willing to fill these positions. However, in areas such as the Cloquet district there are fire departments and private ambulance services that have employees certified in both fire and EMS. Therefore, the district is afforded the opportunity to hire paid-on- premise (part-time) personnel to address future staffing needs.
Privatization/Contractual The consultants have dealt with municipalities/districts that either do not have their own fire department or have a combination of their own employees and individuals hired through a service (contract) that provides everything from personnel to apparatus and equipment. There are also communities that are protected by totally private fire departments.
McGrath Consulting Group, Inc. Page 117
The fiscal benefits are the most attractive reason to contract fire/EMS services. In this scenario, the district reaches agreement with the service provider and has no additional expenses. In other words, the cost of fire service becomes a fixed line item in the budget. The district hires positions, not individuals; all overtime, sick, vacation (etc.) benefits become the responsibility of the service provider.
The most commonly heard complaint about contractual employees is their tenure with the service provider. Many individuals who take these positions do so until full-time career positions become available in career departments, so turnover can be a concern.
The Elephant In the Culture Observation section of this report the consultants indicated “the most significant challenge for the CAFD” pertain to the current environment between the career and paid-on-call members. The picture and topic was a very different approach to how we present opportunities because the consulting team observed that either no one on the board or fire department leadership recognized it or worse yet did recognize it and chose to ignore it; left unaddressed it will destroy the current consolidation.
There are copious papers written on the differences between career and volunteer/paid-on- call, not from the perspective of one is better than the other; rather, the differences in perspectives between volunteers/paid-on-call and career most often see themselves very differently and without considerable mentoring of each group, the differences multiple and the similarities diminish. The differences in perspectives between volunteers and career as summarized below: Time commitment Training Different standards of performance Differences in rules and/or enforcement of rules Communications Deployment
McGrath Consulting Group, Inc. Page 118
Compensation Career development Unionization Threat Job security Perception
It is not unusual that as the number of career members grows, the harmony with the paid- on-call diminishes; although the current relationship has significant challenges.
Subculture development occurs when individuals believe they have autonomy, empowerment, and independent thinking, which are all desirable attributes; however, they must be in balance. It is important to point out that the fire department structure is “paramilitary” by design. There is a reason for this regiment. Emergency work requires a strong assignment matrix which breaks itself out into teams and tasks. Fires get extinguished, people get rescued, and dangerous situations are mitigated successfully through teamwork, consistent training, and strong leadership. Without all of these things working in concert, sometimes there are difficulties in getting the job done.
A fire department must be a unified workforce with a complement of components. All of these components must be tied together by leadership, teamwork, and an understanding of the mission. The mission should be set by the leadership, clearly and unequivocally. The disparity examples described in this report are undoubtedly leadership problems in need of a leadership solution.
Resolving the Elephant The International Association of Fire Chiefs recently published an article identifying what volunteer/paid-on-call members are seeking from the fire department. A summary of article is presented below: 1. Action – POC want to be actively involved in emergencies. Currently, the CAFD paid- on-call involvement on the emergency scene is very limited if utilized at all.
McGrath Consulting Group, Inc. Page 119
2. Respect – Word travels fast in the fire service and if POCs are treated as second-class citizens members tenure will be short lived and recruitment most difficult. An environment for all members of interoperability is essential. The CAFD elephant described in this report is more inhibiting than those close to the organization know.
3. Training – The reason repeatedly given to the consultants why the POC are not utilized. In the case of CAFD this is a self-fulfilling prophecy. Are the POC not trained adequately because they are unable to learn the skills need on the emergency scene – or – are the POC not trained adequately because their training program is insufficient and doesn’t take advantage of technology – or – they don’t feel welcome to participate in existing training? The CAFD career employees do not lack the skills to training the POC to a very high productive level.
4. Appreciation – Acknowledge the success of any employee is no less important with POC then career. POC have primary occupations and therefore limited time to offer the fire department so the time given to the department needs to be acknowledged. Few POC participated in the interviews with the consultants, a systematic issue on its own; however, most that did interviewed when asked if they felt appreciated unfortunately did not.
5. Part of the Team – Wearing the CAFD patch is an honor and should only be given to those who earn it. Part of the team means being treated the same as members of the career staff – and by everyone in the department.
(Source: IAFC On Scene – November, 2014, The Making of a Volunteer in a Volunteer/Combination Department, by Richards, Jr., K)
CAFD Elephant Resolution Approach The very first thing that needs to happen is the establishment of clear written policy of how the paid-on-call and paid-on-premise staff will be utilized. The CAFD needs a policy that encompasses the above IAFC five points. Policy writing and posting has occurred in the past without program success, so that outcome cannot be acceptable. Although not acceptable, some members will assume no matter how serious leadership is – the status-quo will prevail. This is the first challenge for leadership.
There should be, within a very short time, an emergence of continuity of members when it is apparent that the status-quo is not an option. As the continuity grows, the fire department should come together as one fire department with the components that complement the group as whole.
McGrath Consulting Group, Inc. Page 120
Second, the leadership needs to move closer to a “hands-on” style of management. By default, there is presently an inordinate amount of decision making at the battalion chief and captain level. The chief is missing in action here to a great extent because of his office location and the excessive number of tasks expected of him, normally performed by subordinates. The battalion chiefs and captains should be making decisions but the chief should be monitoring, mentoring, and encouraging the positive outcome desired. This is the time for the chief to catch people doing things right, not wrong. The consultants believe the vast majority of the station leadership take pride in their organization and will perform to expectations if the expectations are clear, written, enforced, and acknowledged when successful.
Third, the chief needs to internalize his focus and recognize that he is expected, by the entire department membership as well as the CAFD governing officials, to lead in all aspects of the organization. Once trust and respect are lost, it is doubtful if it can be retained to the degree needed for success. Fortunately, CAFD leadership is not at this point but that fork in the road is rapidly approaching.
Perhaps Jim Collins stated it best in his book Good to Great, “True leadership only exists when people follow when they have the freedom not too.” All the components to move CAFD from a good department to a great department are within the organization; whether the department chooses to remove the “elephant” will impact CAFD’s future.
Later in this section the consultants address opportunities for the future staffing methodology for CAFD. That recommendation will encompass three of the four staffing methodologies outline above. To be successful leadership will need to be held accountable once given the resources needed for success. The elephant is the most significant challenge for the CAFD.
National and State Staffing Methodology Comparison NFPA in 2013 reported the following four types of departments and the percent of US population they protect:
McGrath Consulting Group, Inc. Page 121
Table 25: Types of Departments & Percent of US Population Protected Type of Department # of Departments US Population Served All Career 8.7% 48.8% Mostly Career 6.6% 16.9% Mostly Volunteer 18.1% 16.5% All Volunteer 66.6% 17.8%
The NFPA compares a department’s staffing methodology to both national and state data by population categories. There were 26,430 departments nationwide that responded to the survey. The CAFD population protected (city and district) was estimated to be 22,000.
The table below indicates how the CAFD compares to the population in the United States in regards to staffing methodology. The line highlighted in blue represents the CAFD current population protected.
Table 26: Types of Staffing Compared to Population - National Mostly Mostly All Population Career Total Career Volunteer Volunteer 1,000,000 or more 81.8% 18.2% 0.0% 0.0% 100% 500,000 – 999,999 71.4% 21.4% 7.1% 0.0% 100% 250,000 – 499,999 85.3% 11.8% 2.9% 0.0% 100% 100,000 – 249,999 81.8% 18.2% 0.0% 0.0% 100% 50,000 – 99,999 70.3% 18.9% 10.8% 0.0% 100% 25,000 – 49,999 47.1% 24.2% 24.5% 4.2% 100% 10,000 – 24,999 23.2% 26.3% 37.4% 13.0% 100% 5,000 – 9,999 5.9% 6.7% 41.6% 45.7% 100% 2,500 – 4,999 1.3% 2.6% 21.1% 75.0% 100% Under 2,500 1.0% 1.9% 4.8% 93.3% 100% Source: NFPA 2013 Survey of the Needs of the US Fire Service
NFPA also provides population comparisons to fire department staffing methodology for each state. In the State of Minnesota 776 fire departments responded to the NFPA survey. The table below indicates how the CAFD compares to staffing methodologies of other populations within the State of Minnesota. The line highlighted in blue represents the CAFD current population protected.
McGrath Consulting Group, Inc. Page 122
Table 27: Types of Staffing Compared to Population - Minnesota Mostly Mostly All Population Career Total Career Volunteer Volunteer 25,000 > 20.80% 12.50% 66.70% 0.00% 100% 10,000 – 24,999 0.00% 0.00% 64.30% 35.70% 100% < 10,000 0.00% 0.70% 13.10% 85.10% 100% Source: NFPA 2011 Survey of the Needs of the US Fire Service - Minnesota
Future CAFD Staffing Methodology The two tables above illustrated that fire departments nationally and in the State of Minnesota predominately are staffing with volunteers/paid-on-call. So, statistically CAFD aligns with the majority of staffing methodologies nationally and the State of Minnesota; in reality they don’t align inasmuch as the majority of the staffing members are paid-on-call but they are minimally utilized. The consultants recommend the CAFD maximize all of its resources especially the most valuable – personnel. The proposed future organization chart is illustrated in the figure below:
McGrath Consulting Group, Inc. Page 123
Figure 15: Proposed Organization Chart Career
Career/Paid-On-Premise Fire District Board
Paid-On-Call
New Administrative Full-time Fire Chief Civilian Administrative Assistant
Could be a Civilian Fire M arshal Safety E ducation or Career Position Assistant Chief
Training Coordinator Paid-On-Call Safety Officer Coordinator
Available Ranks For Battalion Chief Paid-On-Calls Battalion Chief Battalion Chief
Lieutenant
FEO Captain Captain Captain
FF / EMT
Non-emergency FEO FEO FEO EMS Transport
FF/EMT FF/EMT FF/EMT
Paid-On-Premise Paid-On-Premise Paid-On-Premise Paid-On-Call Paid-On-Call Paid-On-Call
Note: Each shift commander (battalion chief) now will oversee a group of career and paid-on- call members assigned to their shift.
Station #1 – Future Staffing The career shift personnel work a 21-day FLSA cycle referred to as a “Modified Santa Monica” (California) schedule. Each of the three shifts’ personnel work the following schedule to provide 24-hours a day, 7-days a week coverage of Station #1:
McGrath Consulting Group, Inc. Page 124
Table 28: Career Work Schedule - 21 Day FLSA Cycle Career Schedule 24 hrs. On-duty Day 1 48 hrs. Off-duty 24 hrs. On-duty 24 hrs. Off-duty 24 hrs. On-duty 72 hrs. Off-duty 24 hrs. On-duty 24 hrs. Off-duty 24 hrs. On-duty 24 hrs. Off-duty 24 hrs. On-duty 24 hrs. Off-duty 24 hrs. On-duty 120 hrs. Off-duty Day 21 * This is the 21 day FLSA cycle.
An individual’s first shift day will always begin on a Tuesday and end 21 days later. The battalion chiefs work the same schedule but in reverse – discussed in greater detail later within this section of the report.
Upon completion of the 120 hours off duty (day 21), the schedule starts over again. In essence, each member works seven, 24-hour shifts in a 21 day period. All CAFD fire, rescue, and EMS emergency responses originate and are responded to from Station #1 regardless of which stations’ district the call is in. The outlying stations may be paged out for a response as backup or as first responders.
Off-duty Career Callback As reported previously, off-duty career personnel are relied upon quite heavily on a daily basis to cover the station while the on-duty personnel are out of service handling the emergency. It was reported to the consultants that perhaps there might be two days a month when off-duty callback isn’t utilized; or 93.4% of the time, off-duty callback is required to bring the station staffing back to four.
McGrath Consulting Group, Inc. Page 125
This even seems like an underestimate from the information gathered through the interviews with the career employees. In fact, the consultants were told that some members will shower after their shift ends and remain at or close to the station for a period of time in order to be called back for station coverage. It is a double-edged sword for many who enjoy (rely on) the overtime money inasmuch as it is so frequent; however, the workload can take its toll. There is often a bell-curve response to this type of callback. At first the overtime money is a bonus, however, it soon can become a necessity to maintain their lifestyle. Therefore, people seeking the overtime continues to rise until either the employee no longer can work the additional hours or no longer wishes to enjoy the benefits of the extra money; at which time the number of employees willing to come back begins to diminish. It is accurately described as there are consequences to burning the candle from both ends.
In addition, this is an expensive method to ensure the station is adequately covered. If a career employee gets called back the rate of pay is dependent on the reason and date for the callback as illustrated below:
Hourly rate times 1.987%/hr. (Emergency Overtime) – when off-duty career personnel are called back to maintain the four person station coverage due to on-duty personnel responding on an emergency. Guaranteed minimum of 2.2 hours pay.
Hourly rate times 2.650%/hr. (Vacation/Holiday Call-in) – when off-duty career personnel are called back on a holiday or if they are on vacation. Guaranteed minimum of 2.0 hours pay.
Hourly rate times 1.5%/hr. (Scheduled Replacement) – when off-duty personnel are called back to cover a vacancy created by sick leave. Guaranteed minimum 2.7 hours pay.
The budgeted amount for the three combined anticipated overtime was $162,000 including acting officer pay. However, the budgeted amount historically is less than the actual amount spent which was as high as $195,189 in the 2010 actual budget.
McGrath Consulting Group, Inc. Page 126
Addressing Overtime Callback: The rates are set in the contract and in some cases were awarded by an arbitrator so the consultants will not challenge the overtime rates. However, they do suggest reducing the amount of career callback by the following three actions:
Additional Career Employees Currently, the on-duty career shift personnel are at seven at maximum and four at minimum. This includes the battalion chief or acting battalion chief. When the department is below four they call in off-duty career personnel to bring the staffing level back to four. The table below illustrates the number of full days CAFD had on-duty career shift personnel at Station #1. Do not confuse this with how often the off-duty personnel are called back.
Table 29: Career Staffing Numbers On-duty Year 7 On-duty 6 On-duty 5 On-duty 4 On-duty Exception Total 2013 Days Staff @ 131 151 65 15 3 365 % of Total 35.89% 41.37% 17.81% 4.11% 0.82% 2014 10 Months @ 51 128 90 31 4 304 % of Total 16.78% 42.11% 29.61% 10.20% 1.32% 2014 is from 1/1/2014 to 10/31/2014
The exception category numbers are days in which either one additional person was on-duty caused by a shift schedule change or days in which it fell to one below minimum due to multiple sicknesses.
Although there were only six times in 22 months when the staffing fell below minimum (one exception was one additional on-duty), the consultants recommend that minimal staffing of four means exactly that - minimum staffing of four. That vacant position should be filled.
The decrease in days at maximum staffing of seven in 2014 has been due to three long-term injuries in which the individuals are out of work for an extended period. Most of these situations can be absorbed by having less people on shift that day; however, with less people on shift, the
McGrath Consulting Group, Inc. Page 127
greater the number of times off-duty personnel are being called back to maintain four people in the station to cover while the on-duty crew is on a call.
The next important issue pertaining to when shift days were at four is how often did the department need to hire a 24-hour individual to reach four minimum? Only once in 2013 and only twice during the ten months of 2014 did this situation occur. This is a clear indicator that abuse of sick time is not rampant within the CAFD by the career members.
Therefore, the addition of one additional career member per shift is intended to decrease the number of times (93.4%) that off-duty career callback will be required.
Paid-On-Call Supplement By contract the CAFD must have a minimum of three shift career members on-duty each day; however, the department is able to augment that shift as needed. Therefore, the department leadership should develop a pool of trained paid-on-call members who are available and willing to augment the on-duty shift as needed.
This can occur in several ways: 1. Paid-on-call would be called back to bring the minimum staffing on-duty to four when on-duty crew was on a call.
2. Paid-on-call would be assigned to handle either in conjunction with a career paramedic or in stable non-emergency patient transports without a paramedic. In either case the paid- on-call would be the primary staff personnel to handle patient transports. The certifications of the crew would need to match the potential treatment the patient might need.
3. Paid-on-call could perform in the role of paid-on-premise (described below)
Paid-On-Premise Supplement Paid-on-premise could be paid-on-call personnel assigned to work a defined shift, usually 12 hours, or individuals from other departments certified as firefighters and EMS up to and
McGrath Consulting Group, Inc. Page 128
including paramedics. There is most likely ample individuals within a reasonable geographic area who are both qualified and willing to fill these part-time positions.
Paid-on-premise personnel can perform a variety of jobs throughout their work hours including but not limited to: Fire inspections Pre-plans (information gathering for preparation for a fire in a particular occupancy) General house cleaning Minor vehicle repair/maintenance Public safety education opportunities Recruitment activities Training Physical fitness Administrative support work
Insure Competency The paid-on-call staff would need to be trained to a certain level in both fire and EMS to participate in staffing opportunities. This training can be provided by the current members of the CAFD, however, unlike the previous “ride along” program implemented by the chief which failed drastically; the department leadership would be held responsible to ensure proper training was provided. This will also require leadership to address the current culture within the department described throughout this report.
Battalion Chiefs Schedule The battalion chiefs work the same number of hours as the rank and file personnel with the exception that they work it in a reverse order (see Table 28: Career Work Schedule – 21 Day FLSA Cycle) illustrates that the career shift personnel will always start on a Tuesday and end the 21 day cycle on a Monday. The battalion chiefs will begin on a Monday and end on a Tuesday (reverse order). Therefore, the shift personnel are working with different battalion chiefs during the 21 day cycle. McGrath Consulting Group, Inc. Page 129
Consistency of Supervision The reversing of the start and finish day for on-duty shift personnel to the battalion chiefs was implemented to ensure that each shift did not become its own fire department and the diversity would require a greater effort on the battalion chiefs to ensure rules and procedures were implemented the same across the three shifts. Unfortunately, it perhaps has had the opposite results.
Shift personnel indicated that they learn the idiosyncrasies of each battalion chief and adjust their work accordingly. What the department needs is the development of teams and holding officers accountable for their supervisory responsibilities. This is best accomplished by placing the battalion chief on a shift with the same personnel for 12 months, which is the recommendation of the consultants. At the end of the 12 month period one career firefighter/paramedic rotates to a different shift. Only three firefighters/paramedics rotate per year and it will take seven more years before that individual will rotate again. The battalion chief remains with the shift assigned and does not rotate.
Stations #2 and #3 – Volunteer (Paid-on-Call) Staff Paid-on-call staff comprise all responses from stations #2 and #3 as follows:
Table 30: Paid-on-call Staffing Stations #2 & #3 Station #2 - Perch Lake Station #3 - Scanlon Rank # of Rank # of Captain 3 Captain 3 Equipment Operator 1 Equipment Operator 1 FF/1st Responder 8 FF/1st Responder 16 1st Responder 1 1st Responder 0 Total 13 Total 20
Therefore, between Stations #2 and #3 there are 25 people with EMS certifications; nine of the 25 have the next higher certification of EMT.
McGrath Consulting Group, Inc. Page 130
Depending on the nature of the emergency and unfortunately which battalion chief might be working, the paid-on-call personnel might or might not be requested to respond. Most troubling is that the consultants were told that even on a fire call command might not request the paid-on- call stations because “there was no assurance they would respond anyhow”. Even if their response availability was poor historically, the response for additional resources should be based on “first due response” (a card which details what resources are due to respond and from where on the initial alarm).
The best way to kill enthusiasm in a paid-on-call member is to not utilize them on emergency responses. Again if the justification is “they are not trained” that is the responsibility of leadership to ensure they get the needed training. With all the talent possessed amongst the career members it would be difficult to justify a poorly trained paid-on-call member.
Training/Safety Officer Although the position currently exists, there are copious opportunities to improve the productivity of that division. It would need to begin with the fire chief clearly identifying his expectations of that position to the entire membership and then holding all officers responsible for ensuring compliance.
Moving the Administration into a New Headquarters Facility Within the Station section of this report the need for a new headquarters facility will be described and recommended.
The placement of the fire chief and training/safety officer in a location removed from the only staffed fire station exacerbates the leadership challenges and amplifies the culture dysfunction described within this report. At this time perhaps more so than ever before, the fire chief must be in the same facility as the career staff to assure continuity and functionality.
McGrath Consulting Group, Inc. Page 131
Assistant Fire Chief The CAFD Board needs to conduct a national search for the position of second-in-command of the CAFD titled assistant fire chief. This position should be filled within nine months and open to internal and external candidates who meet the hiring criteria of the CAFD board.
The minimal candidate requirements should include –but not limited to: Bachelor’s degree in a related field to the position
Minimum of five years of experience as a chief officer in a supervisory capacity (top three ranks within the department)
Experience within a combination: career/volunteer department
Experience in personnel management, performance/competency evaluation, and recruitment
Familiarity with organized labor and experience in contract negotiations
Ability to create a positive, cooperative, and supportive relationship with all department personnel and other area service providers.
Computer literate and knowledgeable about technology appropriate to emergency operations.
Possess proven fire-ground/emergency command experience.
Assessment Center Testing Final candidates should participate in assessment center testing. An assessment center is a process that places the candidate in a testing environment that provides a high degree of reliability and insight into his/her supervisory, leadership, and/or management potential by testing skills and ability rather than just knowledge. The candidates participate in a series of exercises designed to simulate his/her competency to perform a particular job.
The assessment center process allows the assessors to observe the candidate’s thought process, organizational skills, leadership ability, stress tolerance, analytical skills, influence, delegation ability, decisiveness, sensitivity and/or empathy, communication techniques both verbal and non-
McGrath Consulting Group, Inc. Page 132
verbal, ability to function as a team member, and his/her ethics. CAFD is able to evaluate, before hiring, how an individual will perform in the job by observing the candidates handling the job-simulation exercises.
Administrative Assistant CAFD needs to hire an administrative assistant for the fire chief within the next six months. The job should require experience in a variety of clerical, secretarial, and administrative work in assisting in the administration of the standard operating policies and procedures of the fire department. The position requires routine clerical and administrative work in answering phones, receiving the public, providing customer assistance, cashiering, data processing, and bookkeeping.
Recommendations – Staffing Leadership must address the working relationship between the career and paid-on-call members and integrate them into a single cohesive team. Priority 1
The chief should implement a more “hands-on” style of management in addressing the division between the career and paid-on-call members. Priority 1
The CAFD should adopt the new organization chart as illustrated and defined in the report. Priority 2
Future staffing of Station #1 should include the combination of career, paid-on-premise, and paid-on-call members. Priority 1
The CAFD should hire three additional career members bringing shift staffing to eight firefighters/paramedics per shift. Minimum daily on-duty staffing should remain at four. Priority 3
A paid-on-call group should be trained to provide non-emergency patient transports allowing the on-duty paramedics to remain available for emergency responses. Patient condition will warrant if paramedic transport is needed. Priority 3
A paid-on-premise program should be implemented to augment on-duty staffing. Priority 3
The training/safety officer role should be reassessed, redefined, and implemented with new clear job expectations and accountability. Priority 2
McGrath Consulting Group, Inc. Page 133
As soon as possible the fire chief and administration offices should be moved in a new headquarters facility. Priority 4
The hiring process for the position of assistant fire chief should begin immediately and the individual in place within the next nine months. Priority 1
The hiring process for the position of administrative assistant should begin immediately and the individual in place within the next six months. Priority 1
Develop a schedule for volunteer participation to provide certain hours of coverage for Station #2. Priority 2
Consider daytime manning of Station #2 as call volume dictates either through career personnel redistribution or through utilizing paid-on-premise personnel. Priority 5
McGrath Consulting Group, Inc. Page 134
Human Resources This section will discuss the current functions associated with human resources under its current organizational structure and recommendations for change.
Before beginning, it must be mentioned that the personnel function of POC/combination districts is extremely difficult. In the case of Cloquet, there is minimal full-time staff available to take care of the myriad of issues that must be administered in relations to personnel; let alone all of the administrative and operational functions of a fire/EMS district. Thus, in most cases, the administration of personnel becomes secondary. One must understand, however, that in the State of Minnesota, an employee can sue its employer over discriminatory practices. Typically, Title VII prohibits the discrimination based upon a number of protected categories. This federal law applies to employers with 15 or more employees. In Minnesota however, an organization only needs one employee and all of the protected categories are enforced per the Minnesota Human Rights Act (§363A.08). Further, an employer with more than 15 employees working 20 or hours or more a week must also comply with the Minnesota Disabilities regulations within the Human Rights Act. Presently, the district has approximately 23 full-time employees who work at minimum, a 40-hour work week. Thus, the Cloquet Area Fire District must comply with not only Minnesota labor law, but also a number of labor laws at the federal level. It is, therefore, incumbent upon the district to ensure that it has consistent, fair practices that are adhered to by all supervisory personnel. Further, employees are treated fair and are held accountable for a set of standards. Thus, an Employee Policies & Procedures Manual and Standard Operating Guideline (SOG) or Standard Operating Procedures (SOP) manuals are strongly recommended and that they are updated, accurate, trained upon, and enforced. (Both of these will be critiqued within this section or in the corresponding appendix.)
Human Resources Administration The Cloquet Area Fire District does not have any clerical personnel to assist in a number of personnel and/or bookkeeping operations. Although a number of services are provided by the City of Cloquet, all clerical related activities are performed by either the fire administration or designated division/battalion chiefs. As will be discussed throughout this section, there are a
McGrath Consulting Group, Inc. Page 135
myriad of issues that can get the department into liability issues; and thus, having an individual trained in personnel responsibilities would be extremely beneficial.
The consultant recommends a full-time executive assistant, who reports to the fire chief, be hired to oversee the bookkeeping, human resources of the organization, and general administrative support. The individual should have education and experience in general bookkeeping and human resources. During the interview with the consultant, it was suggested that the City of Cloquet, which also does not have any individual dedicated to human resources, could share a professional. This would be an excellent suggestion; however, without knowledge of the needs of the city, one must caution the fire department that it receives equitable time if a shared individual is hired. With more employees in the city than in the fire department, it could be easy to neglect the fire department.
In the event a shared individual is not agreed upon, then a full-time human resources executive assistant should be hired.
Recommendations Human Resources Administration: The district should hire a full-time administrative assistant to handle all bookkeeping, human resource responsibilities, and administrative support to officers. This can either be a shared position with the city, or a stand-alone position within the fire department. Priority 2
Recruitment Process The following is a brief description of the current recruitment process for both POC and full-time personnel.
Recruitment: Overall, the district does a good job in selection of candidates for hire for both full-time and paid-on-call personnel. The current hiring process for POC/full-time personnel is as follows:
McGrath Consulting Group, Inc. Page 136
There is no formal recruitment campaign – most recruitment is done through word of mouth, or banners in front of the fire station. In the past, local ads, distribution of brochures at department activities, and radio ads have been utilized. The fire chief indicates that they have utilized a number of vehicles for soliciting POC staff, but there has not been a cohesive message. Over the past year, the department has spent time trying to develop a connected message. With that said, the number of POC applicants have continued to drop. The department is trying to determine what the problem is.
Applications are accepted throughout the year. The packet includes the following: o Veteran Preference Questionnaire o Equal Employment Opportunity Information o Waiver and Release of Information o General Authorization & Release Pursuant to MN Data Practices Act
Applications are reviewed by the POC division chief, who in turn coordinates any correspondence. The division chief provides an orientation to the candidate and family in which pizza is served, and the requirements of the position are reviewed. From this orientation, a list of candidates is developed.
Once on the list, candidates are scheduled for a physical agility test that has been developed by the department, as well as interviews with a selected group of division chiefs and POC staff. Selected candidates are given a conditional officer and are subject to background screening, medical evaluation, and driving/felony record search. The district board has the final authority to hire.
Full-time recruitment follows a similar process; however, the CAFD is part of a consortium with the local college. The college administers the written and CPAP (physical agility) exam. The CPAP is pass/fail and there is a designated passing score on the written test. The written exam is administered by the college, but it is a purchased exam that has been validated for the fire service. In addition, there is a testing process administered for those applying for medical positions. Individuals on the list are interviewed by a panel of selected battalion chiefs, captains
McGrath Consulting Group, Inc. Page 137
and firefighters. Those who remain after the interview are subject to the same medical and background screenings as POC members.
Material Critique & Recommendations The following is a critique of the POC application materials.
Application: The following are suggestions for the application: Social Security Number: Although there is no law that says a social security number should be off an application, the consultants are recommending to clients that it be removed due to the number of individuals that usually see the application. In the era of identity theft, it is best left to the documents that require the number and that are removed from the general application. Education: Indicates last high school name and address; suggesting listing high school and leave a space for the last school attended.
Special Skills: In addition to the IFSAC and EMS certification providing a list of other certifications that are valuable to the department. It is easier to check a list than try to ‘think’ of what might be needed. Driver’s License: Move this off the application to the documents that are required to have this information.
Veterans Preference Questionnaire: The instructions tell the applicant to complete numbered lines; however, the lines are not numbered. Could be confusing as to what needs to be completed.
Waiver and Release of Information: Would add the ability to view information from social media sites (do not request any special passwords, friend status, etc.). Rather it is notification that these sites may be viewed.
General MN Authorization: If possible, combine the two waivers so that only one form is required. The required MN language can still be there, but incorporate other releases of data to simplify the number of forms.
McGrath Consulting Group, Inc. Page 138
Other Recommendations: In addition to the forms that are included, it would be beneficial to add a letter from the board thanking the applicant for his/her interest. This letter could spell out some of the information as to what will occur; requirements of POC/FT employees; licenses/certifications, etc.; drill nights, etc. This is a good way to appear ‘inviting’ to an applicant.
Add a copy of the job description, or a summary job description of a POC firefighter, medic, and/or officer. This allows the applicant to see the general job duties, requirements, and the skills and abilities necessary to be a firefighter. The department may also want to include a sign- off page on the job description that signifies the applicant understands the physical and mental aspects of the job and if any accommodations are required.
Add a list of expectations of POC/FT employee along what the employee can expect from the department. Finally, include a list of any benefits that a POC or FT employee may receive.
When it comes to recruitment of POC/POP staff, fire departments are in competition for POC members with many other organizations. Thus, it is becoming increasingly important to recruit and retain members. The current recruitment process consists of a number of activities. The department has a number of activities that it utilizes to attract new recruits. Members are encouraged to recruit and information is also maintained on the department’s web site.
Continual recruitment efforts are essential to maintain a viable POC firefighting force. Every member of the fire department is responsible for recruiting new members. Simply stated, the fire department that recruits the best is the department that markets itself the best. Unfortunately, fire departments have, in many cases, become “closed shops” allowing only a select few into their ranks.
Recruitment starts with the fire chief, who must be the organization’s “super salesman.” Recruitment must be a goal of the organization and part of the training program for all firefighters. Every firefighter should be taught methods of recruitment and be expected to
McGrath Consulting Group, Inc. Page 139
recruit. Rather than tying up the division chief with administrative recruitment activities, move those to the human resources assistant, and allow the division chief, with a core group of POC personnel, to focus efforts on the recruitment process.
Research conducted by Reade Bush, Philip Schaenman, and Katherine Thiel (1998) for the National Volunteer Fire Council and the U.S. Fire Administration noted:
“There is no single reason for the decline in POCs in most departments. Instead, retention and recruitment problems usually can be traced to several underlying factors, including, more demands on people’s time in a hectic modern society; more stringent training requirements; population shifts from smaller towns to urban centers; changes in the nature of small town industry and farming; internal leadership problems; and a decline in the sense of civic responsibility, among other factors. Although some regions are more affected than others, POC retention and recruitment is a problem nationwide.”
Recruiting and retaining firefighters, especially volunteer or paid-on-call, is an ever-increasing challenge throughout our country. Without question, it is more difficult to recruit and retain volunteer firefighters today than ever before, and the CAFD is no exception to this challenge. POC members are not free and need to be provided with training and leadership. The cost for volunteer/POC protective gear is significant, and gear often cannot be handed down to others under NFPA standards. The management of a POC organization is a very time-consuming job, not to mention the high degree of leadership skills required.
The economics of POC firefighters is the number one reason communities embrace this type of organization. Community leaders are faced with maintaining or increasing public safety services, while there is increasing competition for available revenue. Thus for CAFD, full-time paid personnel and POC members need to be a vital part of the organization. However, the decline in numbers of POC members leads one to believe that the recruitment efforts are insufficient, or the department is not doing a good job ‘selling’ itself. Although past recruitment
McGrath Consulting Group, Inc. Page 140
efforts have given the department candidates, in the upcoming years, the department needs to step up its recruitment efforts. Although in economic downturns the number of candidates may increase, it is essential that the department has a process that assists in obtaining candidates with a commitment to serve the community and understand the demands required on a POC firefighter.
The department needs to make a concerted effort to increase its recruitment activities. The consultants offer these recommendations for the department’s recruitment program:
Encourage top administrative staff to become members in community organizations. Community service groups provide a source of potential recruits because of their philosophy of giving to the community.
Establish and distribute recruitment brochures that detail the requirements and benefits of volunteering.
Follow up after initial contact. A simple phone call sends a strong message of sincerity. Give a formal orientation program for the potential candidate and his/her family. Encourage candidates to bring as many people with them as they like, especially spouses, significant others, and/or parents. It is very important that all family members hear the details of the time commitment and expectations of the new member. The number one reason most POC members leave a department is for personal or family matters.
Maintain an eligibility list of new recruits and start a formal membership program every six months. New recruits benefit from starting with a group of other new recruits. Adopt this practice whenever possible. There is a fine line between waiting too long and having the individual lose interest, as compared to waiting for a scheduled start date to generate the best opportunity for a consistent and formal program.
Keep recruits well informed of their progress and successes. Communicate immediately if problems develop. On average, the consultants found that in most departments only one in three recruits remains with the organization after one year of entry. Develop a mentoring program for this purpose.
Guard against attempts to make membership a social climate. Rather, provide an organization that stimulates a feeling of pride and accomplishment in providing a critical community service.
Generally, high school students are not a good group to recruit. The majority of high school students leave the community shortly after graduating.
McGrath Consulting Group, Inc. Page 141
Know your market. The profile of the average POC/POC firefighter is 20 to 40 years of age, 96.7 percent male, 80 percent married, 45 percent blue collar workers, and 73.1 percent will Volunteer/POC for only one organization. (Source: The POC Firefighters: A Breed Apart by Jack W. Snook & Dan Olsen.)
Train in public. Move some of the training sessions into areas that normally attract large numbers of people or train in various subdivisions and distribute flyers notifying the residents of the exercise a minimum of three to seven days in advance. Be cautious not to create distractions to highway traffic that might contribute to auto accidents. Recruit members at these exercises.
Conduct a media ride-along program. Involve the media by asking them to participate in any actual building “burn down” training exercises.
Launch a door-to-door campaign in targeted areas of the community conducted by existing members. Interact briefly with the residents and distribute a simple recruitment flyer inviting them to contact the department if interested. Tell your story with pictures and as few words as possible.
Keep the recruitment process as simple as possible.
Recommendations Recruitment: Update the application packet for POC and full-time members as recommended, eliminating all areas that could be perceived as discrimination. Incorporate some of the application materials to the separate authorization for background checks. Make sure all supplement application materials are separated from other application materials by the HR assistant, so not to be perceived as items for applicant discrimination. Priority 2
All individuals involved in interviewing should receive formal training on interviewing techniques as well as state discrimination laws. Or, the administrative human resource assistant should sit in on these interviews to ensure compliance. Priority 3
The interview questions should be expanded to include more background and general information of the applicant. Work history, motivation, and evaluating past performance examples are better indicators of an applicant’s ability to perform the job than just gaining an understanding of district’s expectations. Priority 5
When possible, the written and physical agility testing should be completed by the local college as it is for full-time applicants. This was highly regarded by the fire chief; however, it is the college’s policy – at this time – to not include POC applicants. Priority 4
McGrath Consulting Group, Inc. Page 142
Ensure that the hiring of full-time members includes external and internal candidates. Priority 2
Develop an assessment testing process for full-time positions, including the position of fire chief. Priority 4
The Fire Chief should be involved in the interview process – either with the screening of applicants; or interviewing the final candidates. Along with the recommendation of interview committees, the fire chief should be ensuring a fit within the organization’s culture. Priority 1
New Employee Orientation Regardless of a new POC or a new full-time employee, how an employee is introduced into the organization makes a dramatic effect on the longevity of the individual. Thus, a new member orientation is essential for both a POC and the full-time employee – even if the full-time employee has been with the organization. The expectations, as well as the appropriate policies and procedures for both, need to be clearly spelled out.
The current orientation process for POC members needs some development. Currently POC members receive information about payroll and the department within the fire department. Whereas full-time employees receive a full orientation and completion of paper work which is provided by the city’s benefit personnel. Although the information to be provided to a POC member is less than a full-time employee, it is recommended that the city develop a simple POC orientation so that all of the required paperwork, forms, and information is disseminated. With the addition of a human resources assistant within the fire department, since payroll is still a city function, the orientation should be joint with both the fire department and city’s human resource professionals present. This provides two individuals – city and fire department – as resources for the employee/member.
In addition to the city’s orientation, the department should also develop an orientation for both full-time and POC members that provides an understanding of various policies and procedures of the department. This is different from any operational training program. Appendix B is a sample new employee checklist. This sample will need to be modified to include items specific
McGrath Consulting Group, Inc. Page 143
to the Cloquet Area Fire District; and a second checklist for full-time employees could be developed that adds all of the pay and benefit information. But, the sample provides for some basic guidance.
The district does not provide a ‘big brother’ or have a formal mentoring program. Although a formal program is not needed at this time, it would be advisable to implement. It is suggested that the assigned firefighter go through some process to ensure that the individual subscribes to the values of the district, is a member is good standing, and has a thorough knowledge of policies and procedures of the district.
It appears to the consultants that the fire district collects the appropriate documentation for new members/employees and maintains them in the proper personnel files per stated and federal statutes.
A new hire information form should be completed for use within the fire department. The consultant did not obtain a copy of the city’s form, and thus, suggests that either the city or department’s form include the following: Employee’s full (legal) name Preferred name Primary mailing address Any supplemental addresses Gender Birth date Marital status Home/Cell telephone numbers Email address Emergency contact o Name o Address o Relationship o Cell/Home telephone numbers
McGrath Consulting Group, Inc. Page 144
o Work telephone number
All members need to be encouraged to keep this information updated with the administrative assistant – human resources. Recommendations: New Employee Develop a new employee orientation checklist for POC and full-time members to be completed and signed by the employee and the trainer. The city’s checklist may be sufficient for full-time employees, but should also include information specific to the fire department. Priority 2
Develop a process for those that wish to be a new member advisor. Establish minimal criteria to be considered for this position. Priority 3
Compensation For informational purposes, the following information applies to the definition of volunteer/ POC personnel and what is an employee.
Volunteers: The FLSA provides a specific exemption for individuals who volunteer services to public agencies. The FLSA, however, exempts public employers from paying minimum wage and overtime to individuals who qualify as “volunteers” – individuals motivated to contribute service for civic, charitable, or humanitarian reasons. An individual who performs services for a public agency qualifies as a volunteer, if:
The individual receives no compensation, or is paid expenses, reasonable benefits, or a nominal fee to perform the services assigned to the volunteer; and
Such services are not the same type of services for which the individual is employed to perform for the same public agency.
If an individual meets the above criteria for volunteer status, he or she will not be considered an employee covered by FLSA minimum wage and overtime provisions. A public employer can pay a nominal fee to volunteers; the fee must not be a substitute for wages and must not be tied to productivity. Thus, a volunteer or paid-on-call member in a municipal environment,
McGrath Consulting Group, Inc. Page 145
performing public safety responsibilities, and who does NOT receive compensation that is tied to productivity, such as an hourly wage, would also be exempt from the minimum wage requirements.
Paid-on-Call or Paid-on-Premise Personnel: Individuals who receive some sort of compensation or nominal fee will have their employment status based upon how the fee is distributed. Two types of compensation are considered to be nominal fees by the Department of Labor (DOL) and continue to exempt the employee from the Fair Labor Standards Act – Pay per call, or a monthly/annual stipend. Pay per call, whether the person responds from their home or place of employment or is scheduled for hours at the fire station (paid-on-premise), is compensation paid to the individual when responding to an emergency call. The amount of compensation may not be tied to productivity and may not vary on time spent on the activity. The Department of Labor’s regulations specify that the payment of a nominal amount on a per- call basis to POC firefighters is acceptable so long as the compensation is tied to the POC member’s sacrifice rather than productivity-based compensation. (DOL, Wage and Hour Division Opinion Letter, August 7, 2006)
However, the Department of Labor has determined that payment to POC firefighters on a per- hour basis destroys the bona fide POC status and creates an employment relationship. This type of payment is akin to hourly wages based on productivity. (DOL, Wage and Hour Division Opinion Letter July 7, 1999).
The CAFD pays its POC members on an hourly rate; thus, the member is considered an employee and time must be tracked. In the event the time worked exceeds 40 in the defined work week, the employee would receive overtime.
The department provided a compensation system for POC employees that has 16 steps and a base wage for a Firefighter or Firefighter I. Then, based upon additional skills – Firefighter II, Medic or EMT or additional responsibilities – captain, public education, etc., additional compensation is added to the base. The POC member must receive a satisfactory evaluation in
McGrath Consulting Group, Inc. Page 146
order to be considered for the step increase. The department must ensure that annually it is placing money on the schedule itself, in order to keep up with the cost of living.
The department may wish to not only conduct a comparable wage study to ensure that its POC rates are comparable with similar departments, but also evaluate if there could be one base rate, and then the additional dollar amounts are ones that are needed within the organization. For example what about an extra dollar amount for specialty training (Haz Mat, high angle rescue, dive team, etc.) and/or taking on additional activities within the organization – trainer, in charge of inventory, maintenance, etc. These are only examples and would need to be tailored to the specific needs of the department.
Minnesota wage and hour requires the payment of overtime for employees who work more than 48 hours per week, unless the employee is specifically exempt under MN Statute 177.23, sub 7. Within this statute, subsection 7 exempts “any individual employed by a political subdivision to provide police or fire protection services or employed by an entity whose principal purpose is to provide police or fire protection services to a political subdivision”. Absent overtime laws in the State of Minnesota, the federal Fair Labor Standards Act (FLSA) would then take precedence. Per a bulletin published in April of 2013 by the League of Minnesota Cities, employees who perform police and firefighter work will be considered non-exempt under the Fair Labor Standards Act and must receive overtime or compensatory time off.
POC personnel are paid on a bi-weekly basis. As with the union employees, a work cycle should be established (suggest the same as the full-time employees) and overtime paid for hours worked in excess of 159 hours in a 21 day work cycle.
Fair Labor Standards Act (FLSA) The Supreme Court decision in Garcia v San Antonio Metropolitan Transit Authority et al (105 s.ct.1005) in 1985 required state and local governments to establish a work period ranging from 7 to 28 days in order to identify overtime threshold limits. The overtime language in the union
McGrath Consulting Group, Inc. Page 147
contract indicates that the CAFD has chosen to pay overtime in excess of what is required by federal law.
The basic regulation under the FLSA is the payment of overtime. According to the FLSA, individuals who work more than forty hours per week are entitled to compensation at time and one-half. Under the FLSA, a municipality can designate a work cycle for fire and police departments utilizing the 7K exemption component for relief of overtime. The FLSA allows the municipality the ability to designate a work cycle from 7 to 28 days (see table below). Each day has an associated number of hours that the employee is allowed to work before the payment of overtime. Hours actually worked over the allowable amount under the law must be paid at one and one-half the normal rate. The following is the FLSA 7k exemption chart for fire departments.
Table 31: FLSA Table for Fire Departments Cycle Hours Allowed Hours Worked FLSA Overtime 28 212 224 12 27 204 216 12 26 197 208 11 25 189 200 11 24 182 192 10 23 174 184 10 22 167 176 9 21 159 168 9 20 151 160 9 19 144 152 8 18 136 144 8 17 129 136 7 16 121 128 7 15 114 120 6 14 106 112 6 13 98 104 6 12 91 96 5 11 83 88 5 10 76 80 4 9 68 72 4 8 61 64 3 7 53 56 3 Cycle = number of days needed to work before overtime becomes available
McGrath Consulting Group, Inc. Page 148
Once the FLSA cycle is determined, the FLSA requires that overtime be paid for hours worked beyond the established number. Thus, in a 28-day cycle, overtime would be paid for hours worked beyond 212 hours. There needs to be a distinction between “hours worked” and “hours paid.” The FLSA only requires that overtime be paid for actual hours worked. If the employee were to take a day off during the 28-day cycle (for example), these hours would not count toward the accumulation of overtime. He/she would be paid for their vacation time, but not at an overtime rate. As an example: An employee is scheduled to work 224 hours. During the cycle, the employee is granted and takes a 24-hour vacation day, and covers 12 hours for another employee. Here is how overtime is calculated:
Example 1 FLSA cycle hours = 224 -_ 24 hours vacation time 200 hours worked + 12 hours for added shift 212 hours work (no overtime accumulated) The employee, however receives 236 hours of pay (add the 24 hours of vacation time) all at straight time. Example 2 FLSA cycle hours = 224 + 12 hours for additional shift coverage 236 hours paid as follows: 212 hours paid at straight time 24 hours paid at time and one-half
Overtime and Work Cycle The Cloquet Area Fire District, per its union contract, has established a 21-day work cycle. Thus, it needs to pay overtime for all hours worked in excess of 159 in 21 days. The department pays its employee’s bi-weekly, thus, the first pay check of the month would not include any overtime, and the second pay check would include all overtime earned in the 21 day cycle. Unfortunately, a 21 day cycle does not align well to a 30/31 day month, so the city’s payroll
McGrath Consulting Group, Inc. Page 149
department will need to calculate the 21 days in relation to each pay period to determine which pay check will and will not receive the earned overtime.
The department has established through its work schedule, the employee works an average of a 53 hour week for a total of 2,756 hours per year. The consultant took the work schedule and ran the schedule for an entire year. The consultant is unsure how the department determined it was a 53 hour work week, when the work schedule produces either a 72 or 48 hour work week. During the 21 day cycle, an employee could work as low as 144 hours to a high of 168 hours. The total hours worked per year is closer to 2,784 versus the current 2,756 hours.
Firefighters often negotiate level pay plans within their department, so they are paid as if they worked the same number of hours each pay period. However, firefighters do not always work the same number of hours per week. With the work schedule in place in the fire department, employees work about 48 or 72 hours per week. The assumption that a firefighter works an average number of hours per week will result in underpayment of overtime for some pay periods and overpayment for other periods. The Fair Labor Standards Act prohibits the averaging of FLSA overtime over work periods and the Department of Labor has specifically prohibited this practice regarding firefighters (29 C.F.R. §778.104). Therefore, pay for firefighters must be based upon the actual hours worked in the FLSA work period, not an average of the hours worked.
The fire department is paid biweekly and uses an average of 84 hours per pay period. During a two-week pay period and employee could work 72 hours or 144 hours. Further, overtime is paid bi-weekly as well. The consultants highly suggest that the bi-weekly pay roll is determined by the actual time submitted on the time sheets. Further, overtime is not paid bi-weekly, rather at the end of the 21 day cycle. This will alleviate any problems with employees being inadvertently over or under paid.
CAFD pays overtime higher than required per FLSA in a number of ways. First, as just discussed, overtime is paid on hours worked, not hours paid. However, through contract
McGrath Consulting Group, Inc. Page 150
negotiations, vacation and holiday pay are utilized in the calculation of hours worked. Sick leave is the only time-off benefit that is not used in the calculation of hours worked.
In addition to use of sometime-off benefits as hours worked, the department has also negotiated several different overtime calculations in excess of the required one and one-half the employee’s salary. Per the contract, employees who earn overtime per the following schedule:
Table 32: CAFD Overtime Rates Overtime Category Rate Min. Hrs. Sick Leave Replacement 1.5 2.7 Emergency Overtime 1.987 2.2 Vacation/Holiday Call In 2.65 2.0 Regular overtime (beyond 159 hours) 1.5 No min
An explanation was provided that the different overtime rates were to compensate for the amount of overtime received in the police division as compared to the fire department. Often, in compensation studies there is an attempt to ‘compare’ police and fire. This is usually precipitated by one of the two departments in an attempt for equality. However, there are distinct differences in job responsibilities, education, certifications, etc. and any attempts to be ‘equal’ are fruitless. Further, the fire department and the police are now separate entities – one a part of the city, the other the fire district. When possible through contract negotiations, salaries should be compared to similar fire department and if necessary adjusted, and overtime practices should revert back to the federal law of one and one half the hourly rate.
Kelly Days “Kelly days,” a term utilized in the fire service for days off taken to minimize overtime, are used in some fire departments to help offset the work schedule and the cost of overtime. Although not confirmed, the name is rumored to have been coined by a Chicago Mayor (son of a Chicago firefighter) in order to provide more time off; eventually resulting in reducing overtime. Regardless of the name, a Kelly Day is where employees are provided a specific day off within the work cycle in order to either reduce or eliminate overtime. The day off is determined by administration, and is a day – without pay – during the week in which overtime is at its greatest.
McGrath Consulting Group, Inc. Page 151
With the current work schedule, there are a number of weeks in which 144 hours are paid (below the 159 overtime threshold) and others in which the hours are 168 and 9 hours of overtime need to be paid just by working the normal work schedule. The department may wish to consider the implementation of Kelly Days during some of the 168 work cycles to minimize overtime, especially, since vacation and holiday pay is used in the calculation of overtime. This Kelly Day offset, would allow the department to minimize its overtime costs. If implemented, however, the Kelly Day must be a day established by management during the work cycle that has the greatest number of hours – not just another day off to be used by employees.
Union Wage Schedule An analysis of the current union and non-union wage schedule was conducted. The system was developed by Springsted Consulting. The chief indicated that the system was developed to comply with MN Pay Equity Act. This act was passed to address the problem of a wage structure in which there is one pay pattern for jobs performed mostly by men and another pay pattern for positions performed by women. With that said, MN Statutes only address the pay structure, not the pay level or pay method. When developing compensation systems for police and/or fire, past schedules have placed a large percentage between steps – which at one time were fiscally feasible; and there needs to be a greater percentage between ranks to minimize compression. Thus, when analyzing the current compensation schedule, there are a couple of problems with the schedules – cost of the step, and compression. Step systems are very common in the public sector, especially in union departments. All of the full-time employees are on a seven step schedule. At each negotiation, an amount is negotiated to the schedule, and the annual amounts are increased by this amount. An employee moves to the next step in January of each year. There is 3-4% between each step, so for example, if 1.5% is added to the salary schedule, the employee receives a 5.5% increase.
Step schedules in the late 1980’s – mid 1990’s had rather large percentages between steps. However, since 2002, the percentage between steps has been decreasing due to the cost to the organization of the schedule plus step increase. It is more common to see 2 – 3% between steps. This is something both the union and the district may want to consider in order to control costs
McGrath Consulting Group, Inc. Page 152
within the department. When reducing the percentage between steps, it may also be beneficial for the department to increase the number of steps. Within the next five years, there will be a number of employees who have reached the top of the scale.
The other issue is called compression. Compression is when the base wage plus overtime exceeds the rank above. This can stifle individuals who seek promotion as it may result in a pay decrease, rather than increase. The consultant conducted an analysis of compression and found that it is a problem within CAFD. The table below, without employee identification, illustrates the 2013 fiscal year total compensation (salary plus overtime) by rank.
Table 33: Compression Analysis Rank Regular Pay Total OT Total Comp Fire Chief $83,073.54
Captain $61,427.38 $17,873.22 $79,300.60 Fire Equipment Operator $58,849.42 $19,759.38 $78,608.80 Battalion Chief $62,858.57 $15,501.57 $78,360.14 Battalion Chief $67,335.69 $8,567.58 $75,903.27 Battalion Chief $67,335.69 $8,024.43 $75,360.12 Captain $61,726.96 $12,420.68 $74,147.64 Fire Equipment Operator $58,849.42 $12,084.76 $70,934.18 Captain $55,133.78 $15,440.84 $70,574.62 Firefighters $54,978.89 $14,936.96 $69,915.85 Firefighters $54,978.89 $13,269.84 $68,248.73 Firefighters $54,978.89 $12,813.33 $67,792.22 Firefighters $54,978.89 $12,588.75 $67,567.64 Division Chief-Training $67,335.63
Fire Equipment Operator $58,849.42 $8,229.17 $67,078.59 Firefighters $54,978.89 $10,765.39 $65,744.28 Firefighters $56,307.28 $8,841.49 $65,148.77 Firefighters $54,978.89 $9,574.33 $64,553.22 Firefighters $55,517.97 $8,013.70 $63,531.67 Firefighters $46,971.61 $12,281.08 $59,252.69 Firefighters $48,615.56 $7,746.21 $56,361.77 Firefighters $46,971.61 $7,712.30 $54,683.91 Firefighters $46,971.61 $6,903.18 $53,874.79
McGrath Consulting Group, Inc. Page 153
Compression is usually caused by two issues – the percentage between ranks, and/or how overtime is distributed. In looking at the 2012 and 2013 salary schedule provided of union and non-union positions, there appears to be sufficient spread between the ranks. (Note: salaries were not provided for 2014 or 2015 for full-time administrative personnel). There is a 12% spread between each rank which should provide enough distance.
The consultants suggest that consideration be given to offset the salary schedules at the higher ranks. For example, the job description for a battalion chief requires a minimum of 10 years of experience. Step 7 of the captain salary schedule in 2013 was $64,198, thus a new battalion chief would need to start at step 5, allowing only two more steps. If the battalion chief salary schedule started around $62,859 or Step 3, this would allow greater flexibility in either promoting internally, or finding candidates externally.
Compression is an issue, but one that could be managed by constructing the pay schedule more appropriately as well as standardizing the various overtime rates as previously discussed.
Exempt versus Hourly To determine if an employee is exempt from overtime or if overtime is required, one must understand the definitions of an exempt employee. To be considered an exempt employee – not eligible for overtime – the employer must meet certain tests depending upon the category of the employee: Executive, Administrative and Professional. An exempt employee typically receives a set wage regardless of the number of hours worked.
Exempt employees are individuals who are not eligible for overtime. There are a number of white collar exemptions to overtime and the Fair Labor Standards Act has set up specific criteria that must be met in order to be exempt. At this time there are no job classifications that would meet the criteria for exempt. Depending upon the duties of the fire chief, and if the fire chief actually performs the duties as prescribed, then this position might be considered exempt under the executive classification. However, the consultant would need to review the job description for this position to be sure.
McGrath Consulting Group, Inc. Page 154
Hourly employees should be required to maintain documentation on the hours worked, and hours taken for any time off provisions. Further, hourly employees should receive overtime if the hours worked are in excess of 40 hours per defined work week or the number of hours in a defined work cycle. Employees should not be allowed to work in excess of the scheduled work day unless approved by a supervisor. If such hours are worked, and are in excess of the 40 hours or the established work cycle overtime must be paid. It is not uncommon to find employees, (typically very responsible employees) who generously work more than the scheduled work day and do not put those hours on the time sheet. Although it seems harsh, hourly employees who work beyond the scheduled day, without permission, should be counseled and if necessary, disciplined.
At this time, all positions within the CAFD with the exception of the fire chief, are considered to be hourly and should be tracking hours worked for payment.
Recommendations: Compensation Update the system to one base rate with additional compensation for skills/responsibilities. Evaluate if the list of skills/responsibilities is in need of updating to ensure a skill set that deals with the host of operational activities within the department. Priority 3 POC employees are also subject to overtime per the FLSA. A work cycle should be established and in the event a POC works more than the established hours in the work cycle, overtime is paid. Priority 2 Full-time employee payroll should be based on actual hours worked within the pay period. Further, overtime should be paid on the pay period closest to the conclusion of the 21 day cycle – not biweekly. Priority 3 The various overtime rates should be eliminated and only the federal rate of time and one-half should be paid. If necessary, based upon a compensation comparable analysis, salaries should be adjusted to reflect the fire department market. Priority 2 Consideration should be given to the implementation of Kelly Days on the work cycle with the greatest number of hours to offset the cost of overtime. Priority 3
McGrath Consulting Group, Inc. Page 155
Consideration should be given to reducing the percentage between steps on the full-time salary schedules; as well as looking at the structure of the schedules to allow for movement to the next pay range due to internal promotions. Priority 3
Performance Management Performance appraisals are among the most valuable tools available to a supervisor. However, performance appraisals are seldom done in combination organizations. Evaluations, or performance appraisals, are essential to improving employee performance. When handled effectively, these reviews can help close the gap between what employees do and what administration needs them to do; as well as a way to motivate employees.
Members may view evaluations as a negative event, and they can be if not conducted properly. An effective evaluation program should focus on improving the individual’s contribution to the organization.
Presently, the district conducts evaluations on all members of the department. For all members, satisfactory performance is required to move to the next step. The consultant reviewed the various forms and has provided some suggestions:
The evaluation forms are extremely comprehensive – to the point that supervisors probably do not give them adequate attention. The consultant suggests that they be revised to make them more user-friendly. There are a number of rating categories, each with a point value. Since the department does not have a merit-based system per se, the consultant recommends reducing the number of categories as well as eliminating the point system. The points do not relate to anything. It is recommended that the goals section remain. Especially with POC members, understanding their reasons for volunteering and any career aspirations is usually a way to retain these members. For full-time employees, goals are a way to help employees professionally develop, as well as assist the department in succession planning.
McGrath Consulting Group, Inc. Page 156
Performance evaluations should align with the job descriptions and the expectations of the district. They do not need to be lengthy complicated forms; rather, ask several questions of the supervisor regarding performance, training, willingness to help in the district, etc. A committee of employees and officers should be formed to develop a form and process that is simple to use, yet meets the desired performance outcomes.
All supervisors deemed to be responsible for conducting performance evaluations should receive training on documenting performance, how to conduct a performance evaluation, and the nuances of the form to be used within the district. Performance evaluations should also be a vital part of the promotional process.
Recommendations: Performance Management Train all supervisory employees on how to conduct performance evaluations and performance documentation techniques. Priority 3
Develop a committee to work on revising and simplifying the evaluation forms. Priority 2
Consider adding a self-evaluation component to the evaluation process. This would aid the supervisor in completing the form and make the employee an integral part of the process. Priority 3
Job descriptions appear to be comprehensive and recently updated. Ensure that what is valued within the organization is aligned on both the job description and the performance evaluation to ensure continuity. Distribute the job description along with the annual review to keep the job description updated. Priority 3
Promotions The department has a process of promotions that includes competitive examinations. The department solicits internal candidates first, but can go external. The consultants recommend that for positions of battalion chief an above, the department should recruit both internal and external candidates. This allows the best qualified applicant (internal or external) to be promoted/hired for the position. Competitive promotions also reduce compliancy within the
McGrath Consulting Group, Inc. Page 157
department when individuals feel ‘it is their turn’ or ‘’they have more seniority’. Competition with external candidates also helps internal candidates maintain and/or sharpen their skills.
The department should also consider adding assessment center testing when appropriate. Assessment testing goes beyond written examinations and oral interviews, and provides the assessors with information on a range of topics such as incident command, ethics, communication, organization skills to name a few.
Finally, the job descriptions appear to be very comprehensive, and unlike many organizations also contain information on needed supervisory skills and/or responsibilities. However, all of the previous work experience indicates that it must be with Cloquet. Make it more generic as to the years of experience in what areas – supervision, operations, EMS, etc.
The department does maintain a promotion eligibility list. The individuals who have passed the necessary assessment criteria are then the individuals chosen to serve in ‘acting’ positions. Thus, the individual received training the next rank before the actual promotion. Eligibility lists should be established for a certain period of time (i.e., one year).
Age & Years of Experience The age and years of service is very revealing for the department. As the baby boomer generation continues to age, organizations are finding a significant skills gap between those who have the ability to retire, and the age and experience of those in line to replace them. Efforts and emphasis needs to be placed on developing succession plans so that less tenured individuals within the organization understand the skills, education, and knowledge necessary to step into these positions when they become vacant. Promoting individuals just based upon seniority does not benefit the individual or the organization.
The following figures represent the age and years of service of department members divided by full-time and POC.
McGrath Consulting Group, Inc. Page 158
Figure 16: Full-time Age Comparison - Career
14
12
10
8
6
4
2
0 <20 21 to 30 31 to 40 41 to 50 51 to 60 >60 # of FT Employees 0 2 13 7 1 0 % of Career 0.0% 8.7% 56.5% 30.4% 4.3% 0.0%
Figure 17: Full-time Years of Service Comparison - Career
7
6
5
4
3
2
1
0 <1 1 to 4.9 5 to 9.9 10 to 14.9 15 to 19.9 20> # of FT Employees 0 6 7 0 7 3 % of Career 0.0% 26.1% 30.4% 0.0% 30.4% 13.0%
The full-time work force is not only younger in age, but also in tenure with the department. Sixty five percent of the full-time employees are under the age of 40, and 56% of the full-time employees have less than 10 years of service. The command staff, captains and above are in the upper 30’s to mid-50’s, so with the assumption they will stay within the department for a while, there appears to be little opportunity for promotion. This presents a challenge to the command staff in that the department needs to continually challenge these individuals in both operational
McGrath Consulting Group, Inc. Page 159
and supervisory training in that they, hopefully, will be with the department for a long time, with little opportunity for promotion.
Figure 18: POC Age Comparison
16
14
12
10
8
6
4
2
0 <20 21 to 30 31 to 40 41 to 50 51 to 60 >60 No of POC EE 0 6 16 14 2 1 % of Dept 0.0% 15.4% 41.0% 35.9% 5.1% 2.6%
Figure 19: POC Years of Service Comparison
20 18 16 14 12 10 8 6 4 2 0 <1 1 to 4.9 5 to 9.9 10 to 15 to 20 > 14.9 19.9 Number of POC Employees 1 19 12 0 3 4 % of Department 2.6% 48.7% 30.8% 0.0% 7.7% 10.3%
McGrath Consulting Group, Inc. Page 160
The same hold true, to a lesser degree for the POC personnel in that 82% of the POC workforce has less than 10 years of experience, and slightly more than half – 56%, are under the age of 50. Thus, it is a less tenured employee, but slightly higher in age than full-time employees.
The most vulnerable POC members are those who are less than 40 years old. Employees less than 40 (56%) tend to be pulled from volunteering activities due to family and work pressures. Also, with the minimal tenure of this group, the department needs to diligently work to retain these individuals.
Training and Involvement The key to recruitment and retention within the CAFD is training on various levels. The Training section of this report outlines the operational training that is required. Further it delineates some of the supervisor training needed. However, the consultants must emphasize that training will be of utmost importance as individuals who either volunteer or choose a career in the fire service, want to feel needed, and have activity to keep them interested.
Emphasis needs to be placed on supervisory training with emphasis on coaching, mentoring, recruitment (including employment law), and performance management (employee documentation, performance evaluations, and discipline). Employees who are held accountable for their actions – in a fair and consistent manner- are more likely to stay with an employer than those who feel there is favoritism, inconsistent policy implementation, and feel undervalued. The second piece to this puzzle is the ability to involve members in the operations of the department. There is a distinct difference between employee involvement at the emergency scene and the operations of the department. There is a reason that police and fire departments are considered para-military organizations as the need for chain-of-command and specific responsibilities. However, the generation that is entering the work force (and Cloquet has a number of Generation X and Millennial employees), want to know what’s going on – just responding to an ‘order’ is insufficient. They are tech-savvy and value a work-life balance. So an organization that is dependent upon individuals volunteering their time need to find activities that fit the skills of the individual and fulfill the needs of the organization. This will take time
McGrath Consulting Group, Inc. Page 161
for supervisory staff to understand these needs, and for the command staff to get employees (full- time and POC) involved in the organization.
Recommendations: Promotion Although emphasis needs to be placed on promotion through conducting promotional exams on a regular basis, and opening up the process to internal and external employees, with the age and years of service makeup of the department, emphasis needs to be placed on training and employee involvement. Priority 1
The department needs to focus on operational training (see Training section) and supervisory training. A full list of non-operational training can be found in the Training Section. Priority 2
Supervisory personnel need to develop coaching, mentoring, and performance management skills to understand the motivations and contributions of employees. This information should be utilized to develop continual training opportunities for staff. Priority 5
Further, the department needs to work toward committees, task forces, etc. where employees are involved in determining the operations and direction of the organization. For example, an employee (FT/POC) – management committee to redesign the evaluation form and process. Several committees to continually maintain and update the department’s SOG’s. Priority 2
Discipline It is critical that all members are held to established standards of performance. These expectations should be outlined in the job description, employee policies & procedures manual, SOG manual, and in regular communications with the supervisor. Absent these, members have a tendency to determine their own goals and performance initiatives. This can be detrimental to the district when an employee’s goals are not in alignment with the districts. When this occurs, it is the district’s responsibility to correct and help the member move toward acceptable performance.
According to the fire chief, discipline is rare within the department. Employees who are not held accountable bring down the morale of others within when they see different standards of performance. Thus, all officers should not only be required to have certain levels of supervisor
McGrath Consulting Group, Inc. Page 162
training as a prerequisite to apply, but also receive training on documenting employee performance (positive and negative; coaching, and counseling. Further the legal ramifications of poor supervisory decisions should be taught.
Recommendations: Discipline Supervisory personnel should be trained in proper techniques to document and administer discipline. Priority 1
Personnel Manual, SOG’s, and Union Contact Most organizations find that the pros outweigh the cons to having an employee policies & procedures manual when properly written and administered. Traditionally, an employee policies & procedures manual is a document that contains the policies of the organization. A Standard Operating Guidelines (SOG) manual contains procedures for the operations of apparatus, equipment, and daily operations.
The District’s Policy & Procedure manual appear to be comprehensive and was recently updated. Between the SOG’s and policy and procedure manual, it must ensure that all members of the District – POC, full-time, civilian – are covered under the policies. Although certain members may receive different forms of compensation, the performance expectations and level of service quality is equal among all individuals within the organization. There may need to be distinctions within these manuals as to benefits or policies that apply only to POC or full-time members, but the overall theme of each manual – SOG or Policy & Procedure – should be inclusive.
The consultants critiqued the policies and procedures manual and that can be found in Appendix C. The department is in the midst of updating the handbook, so the consultants utilized the marked up version. In Appendix D, the consultant offers some opinions and recommendations for the union contract. The consultants understand that any change to the contract requires negotiations and ratification by both parties. These are offered for suggestion only.
McGrath Consulting Group, Inc. Page 163
Recommendations Policy Manual & SOG’s Continue to ensure that these manuals are kept up-to-date, members understand and adhere to the policies, and all receive on-going training on the department’s rules and regulations. Priority 3
Place both manuals on the department’s intranet to ensure access by all personnel. Priority 3
Update the Personnel Manual and reorganize it for easier understanding. Priority 2
Consider recommended changes in the union contract in future negotiations. Priority 5
Personnel Records Personnel records have three major functions in an organization. They provide a memory or recall to administration and members; offer documentation of events for use in resolving questions or human resources problems; and provide data for research, planning, problem solving, and decision-making.
While federal, state, and local laws require that certain employee information be maintained, certain basic records should be retained to avoid errors of memory and to provide information for making management and human resources decisions.
What Should Be In Personnel Files The contents of human resources files vary by organization, but most human resources professionals accept some common practices. The following is a checklist of items that may be included in personnel files sorted according to the file in which they should be kept.
Main Employee File Offer/promotion/transfer letter(s) Application form Acknowledgement of By-Laws/SOG/employee manual Acknowledgement of new policies Orientation checklists Termination checklist Performance appraisals
McGrath Consulting Group, Inc. Page 164
Official performance documentation (memos, letters, discipline, recognition, etc.) Payroll documentation (change of address, transfer) Training requests (with approval and/or denial documentation) Copies of certifications, licences, transcripts, etc. Reference checks, background authorization forms and reports – in a confidential section
Separate Payroll File W-4 form Retirement system calculations/benefits Automatic payroll deposit authorizations Miscellaneous deductions Payroll documentation (change of address, transfer documentation, leave of absences, etc.)
Separate Medical File Initial physical documentation Worker’s compensation information (doctor reports, letters, etc.) Ongoing drug and/or alcohol screening information
Subject Files Kept Separate (Usually in one folder for all affected employees; information kept in chronological order or by quarter) Child support DSS requests (Medicaid, etc.) Exit interview forms Garnishments Immigration Control Form I-9 Investigation notes or reports Litigation documents Requests for employment/payroll verification Wage assignments Worker’s compensation claims
The personnel files should have limited access and be kept in a secure filing cabinet. Access to the general file should be restricted to the fire chief and administrative assistant. The member’s immediate supervisor should have limited information and work through the fire chief in obtaining that information. Only the fire chief and administrative assistant should have access to
McGrath Consulting Group, Inc. Page 165
the medical file. The person performing payroll functions should have access to the payroll files both in the fire department and within the city.
Records Retention There are always concerns over the length of time records are required to be maintained. The following outlines a few of the major labor laws and their record retention requirements for the department to follow.
Fair Labor Standards Act: Retention three years a) For employees subject to minimum wage and overtime provisions: Name, address, date of birth Time of day and day of week on which employee’s workweek begins Regular hourly rate of pay Hours worked each workday and total hours worked each workweek Total overtime compensation Total additions to or deductions from wages paid each pay period, along with a record of dates, amounts, and nature of additions and deductions Total wages paid each pay period Date of payment and the pay period covered by the payment Retroactive payment of wages b) For executive, administrative, and professional employees: Basis on which wages are paid, in sufficient detail to permit calculation for each pay period of the employee’s total remuneration for employment, including fringe benefits and prerequisites
Immigration Reform and Control Act: Three years after date of hiring or one year after date of termination, whichever is later.
I-9 Employment Verification form and any attachments
Age Discrimination in Employment Act: a) Three (3) years Payroll or other records which contain name, address, date of birth, occupation, rate of pay, and compensation earned each week.
McGrath Consulting Group, Inc. Page 166
b) One (1) year from the date of the personnel action; except 90 days for application forms and pre-employment records of applicants for temporary jobs Personnel records relating to the following: job application/resume or any other form of employment inquiry; promotion, demotion, transfer, selection for training, layoff, recall or discharge of any employee; job orders submitted by the employer to an employment agency or labor organization for recruitment of personnel; test papers completed by applicant; results of physical examination when considered in connection with a personnel action; advertisements or notices to public or employee relating to job openings, promotions, training programs or opportunities for overtime work. c) While plan or system is in effect, and at least one (1) year after termination Employment benefit plans, seniority systems, merit systems
Vocational Rehabilitation Act: One (1) year For handicapped applicants and employees, records regarding complaints and actions taken and employment records
Occupational Safety and Health Act (OSHA): Five (5) years OSHA 300 and 301 logs
These are samples of the federal laws that govern record retention. There may be other state laws or bylaws that apply to the organization’s record retention policy. Clearly, the department needs to identify and establish a record retention policy and ensure that records are removed and destroyed at the appropriate time.
McGrath Consulting Group, Inc. Page 167
Public Safety Answering Point (Dispatch) The Cloquet Area Fire District serves communities and unincorporated areas in two counties: Carlton and St. Louis; therefore, they communicate with two Public Safety Answering Points (PSAP).
Carlton County PSAP The PSAP is located as part of the Carlton County Sheriff’s office. The PSAP is overseen by the Chief Deputy & Emergency Management Director. The PSAP answers emergency lines for: 4 ambulance departments, 11 fire departments, and five police departments. At night the Carlton County Sheriff’s Office administrative line reverts to the PSAP.
There are three main trunk 9-1-1 lines and four lines dedicated to rollover if the primary lines are busy. All 9-1-1 landlines and cellular lines come to the PSAP and transmissions occur from this location. Cellular 9-1-1 lines are both Phase I and Phase II Wireless service. Phase II service requires that wireless carriers provide Automatic Location Identification (ALI) information to the PSAP centers. The accuracy requirements for this service are 50 meters (164 feet) for 67% of calls and 150 meters (492 feet) for 95% of calls with hand-based solutions, or 100 meters (328 feet) for 67% of calls and 300 meters (984 feet) for 95% of calls with network-based solutions. Therefore, if a caller utilizing a cell phone dialed 9-1-1 and was unable to speak, the PSAP could trace the call to a location close to the cell phone. Phase I can only isolate which tower is receiving the signal.
Dispatchers/Telecommunicators Depending on the PSAP, the individual(s) who answers the phone and dispatches the emergency resources are called dispatchers or telecommunicators. The Carlton County PSAP uses the term 9-1-1 dispatchers and these individuals answer the 9-1-1 phone and dispatch the resources. In some PSAP these are two different positions held by two different on-duty personnel; however, for the size of the Carlton County PSAP, a single individual is capable of performing both functions.
McGrath Consulting Group, Inc. Page 168
The PSAP staffing consists of eight dispatchers which also includes the PSAP administration that can in an emergency perform the duties of a dispatcher. The county has allocated one part- time position; however this position was never hired.
The maximum shift staffing is three on-duty dispatchers and the minimum shift staffing is one dispatcher. There are four shifts divided amongst the dispatchers:
Table 34: Carlton County PSAP - Dispatcher Schedule Carlton County PSAP 4 Shifts Two - 6 AM to 6 PM Two - 6 PM - 6 AM 3 Power Shift 10 AM to 6 PM 3 PM to 3 AM 6 AM to 4 PM 1 Part-time 6 AM to 3 or 4 PM
Therefore, during any combination of these shifts there could be from three to only one dispatcher on-duty.
The PSAP answers 9-1-1 for 11 – Fire Departments 5 – Police Departments 4 – Ambulance Departments Answers County Administrative lines at night
The PSAP does not provide Emergency Medical Dispatch (EMD) which is a system in which the dispatcher is trained in medical care and allowed to use predetermined medical protocols to give instructions to the caller or bystanders on how to assist the victim until emergency personnel arrive. Although this is a program that yields great benefits; it cannot be performed by a single dispatcher who must stay on the line with the caller giving medical intervention steps. Although the consultants highly support this life saving program they do not recommend implementation in Carlton County unless minimum staffing of the PSAP is two dispatchers 24/7.
McGrath Consulting Group, Inc. Page 169
Carlton County Training Carlton County Communications Training Program (2011 edition) is a comprehensive document which provides a four to six month progression of training through four phases. The trainee will be mentored by a Communication Training Officer (CTO) who fills out a daily observation report. A brief description of the program includes: Phase I, A – Introduction to the Communication Center Phase I, B – Listening to Calls, & CAD Phase II, A – Radio Communications Phase II, B – Radio Usage Phase III, A – Non-Emergency Phones Phase III, B – Emergency Phones Phase IV, A – Radio & Phones Phase IV, B – Working Alone Under Supervision Begin Probation Period
All dispatchers must complete the following training: ARMER (Allied Radio Matrix for Emergency Responders) 1. Radio 101 2. History of ARMER 3. Interoperability 4. ARMER Control Stations 5. Computer Basics for Dispatchers 6. Dispatch Technology Part 1 & 2 7. XTS2500 Model II (radio) Parts 1, 2, 3, & 4 8. Interoperability: How to Communicate Outside Your Agency 9. MCC 7500 Dispatch Console Part 1 & 2 10. ARMER Status Board 2 11. Dispatch Scenario Training (ARMER radio system) BCA (Bureau of Criminal Apprehension) 1. Online training modules through MN BCA for State and National Queries
McGrath Consulting Group, Inc. Page 170
2. FBI Security Awareness Training 3. DVS (Department of Motor Vehicle Services) Security Training ICS (Incident Command System) Training 1. ICS 100 - Introduction to Incident Command System 2. ICS 200 - ICS for Single Resources and Initial Action Incidents 3. ICS 700 - National Incident Management System an Introduction Everbridge Mass Notification System 1. Message Sender Certification
The dispatchers are unionized under the Law Enforcement Labor Services of Minnesota.
Carlton County PSAP Facility The dispatch area is within the Sheriff’s Office complex and secured from the general public through locked doors. There are three trunk 9-1-1 lines and four additional administrative lines that also serve as roll-over lines. The equipment is approximately four years old and appropriate for what is found in most PSAPs. The emergency back-up PSAP in the case of a catastrophic event is the St. Louis County PSAP. The PSAP has 100% back-up emergency electrical source from a diesel power generator that is checked once a week.
St. Louis County PSAP At one time St. Louis County PSAP was divided into two sites and through technology advancements and the State of Minnesota encouraging consolidations of PSAPs the new state-of- the-art facility is located as part of the St. Louis County Sheriff’s Office. The St. Louis County PSAP provides emergency phone answering and dispatch services for 177 agencies throughout St. Louis County (see Appendix E):
Table 35: St. Louis County PSAP - Agencies Served Agencies Ambulance 20 Fire 76 1st Responder 56 Police 25
McGrath Consulting Group, Inc. Page 171
At night the only administrative lines answered are those dedicated to the PSAP itself.
All landlines and cellular lines come to the PSAP and all dispatching come from this point. Cellular 9-1-1 lines are all Phase II Wireless service. Phase II service requires that wireless carriers provide Automatic Location Identification (ALI) information to the PSAP centers. The accuracy requirements for this service are 50 meters (164 feet) for 67% of calls and 150 meters (492 feet) for 95% of calls with hand-based solutions, or 100 meters (328 feet) for 67% of calls and 300 meters (984 feet) for 95% of calls with network-based solutions. Therefore, if a caller utilizing a cell phone dialed 9-1-1 and was unable to speak, the PSAP could trace the call to a location close to the cell phone.
Dispatchers/Telecommunicators Depending on the PSAP the individual(s) who answers the phone and dispatches the emergency resources are called dispatchers or telecommunicators. The St. Louis County PSAP uses the term emergency communications specialists and these individuals are call takers and dispatchers. All dispatchers are also trained in Emergency Medical Dispatch (EMD).
The administration of the PSAP consist of a Supervising Deputy, Emergency Management Coordinator and three Assistant Communication Center Supervisors of which one is administrative, one is project management and one is operations.
Table 36: St. Louis County PSAP - Staffing PSAP Staffing Full-time 29 Part-time 19 Four of the full-time hold lead position
The dispatch personnel are divided into call-takers and dispatchers which they will rotate positions as personnel become qualified. The maximum number of dispatchers on-duty are eight and the minimum is six dispatchers which includes one lead dispatcher at all times. The following shifts are filled: McGrath Consulting Group, Inc. Page 172
Table 37: Dispatchers Shift Hours Dispatchers 4:30 AM - 2:30 PM 1 6:30 AM - 4:30 PM 2 8:30 AM - 6:30 PM 2 10:30 AM - 8:30 PM 2 12:30 PM - 10:30 PM 1 4:30 PM - 2 :30 AM 2 6:30 PM - 4:30 AM 2 8:30 PM - 6:30 AM 2 10:30 PM - 8:30 AM 2 Vacation Fill 2
Lead Position 6:30 AM - 4:30 PM 1 12:30 PM - 10:30 PM 1 8:30 PM - 6:30 AM 1
The PSAP does provide Emergency Medical Dispatch (EMD) both through the CAD system and back-up card system. EMD is a system in which the dispatcher is trained in medical care and allowed to use predetermined medical protocols to give instructions to the caller or bystanders on how to assist the victim until emergency personnel arrive. The St. Louis County PSAP provides Emergency Priority Dispatch (EPD) for the City of Duluth Fire Department. EPD is often interchanged when speaking of EMD; however, in EPD the dispatcher will determine what level of resources (e.g., Basic Life Support or Advance Life Support) is needed from the information obtained from the caller and match the proper resources to the need of the caller.
The dispatchers are civil service positions and members of the American Federation of State, County, and Municipal Employees (AFSCME) local 66.
St. Louis County PSAP Training The training program is very comprehensive and takes between nine and twelve months to complete depending on the trainee’s ability. There are three weeks of classroom training
McGrath Consulting Group, Inc. Page 173
followed by one and one-half to two months of training under a lead dispatcher. The new dispatcher begins on the phones and evolves to fire dispatching and then to police dispatching.
The dispatchers have the following certifications: Cardio Pulmonary Resuscitation (CPR) EMD Minnesota Justice Information Services (MNJIS) basic operator certification
Dispatchers are sent to training and conferences for continuing education. Training sessions are also brought in for training such as active shooter for dispatchers training.
Quality Control/Assurance Program Although not a formal program there is quality assurance performed first with the lead dispatchers monitoring the dispatchers on the floor; secondly, the supervisors listen to the calls as they are making tapes for the County Attorney’s office.
St. Louis County PSAP Facility The dispatch area is within the Sheriff’s Office complex and secured from the general public through locked doors. There are 10 trunk 9-1-1 lines and 6 additional roll-over lines. The equipment is approximately four years old and the CAD system is two years old, both appropriate for what is found in a modern PSAP. The emergency back-up PSAP in the case of a catastrophic event is the Carlton County PSAP. The PSAP monitors six primary talk groups for Fire/EMS and law enforcement. All voice communications are done on the statewide ARMER system. VHF is utilized for fire and EMS paging only. The PSAP has 100% back-up emergency electrical source from a natural gas generator that is checked once a week.
St. Louis County PSAP Telephone Traffic The St. Louis County PSAP provided considerable data on their overall activities for 2013. The figure below illustrates the total number of non 9-1-1 incoming calls and the number of 9-1-1 incoming calls:
McGrath Consulting Group, Inc. Page 174
Figure 20: St. Louis County PSAP 2013 Non 9-1-1 & 9-1-1 calls
18,000 16,000 14,000 12,000 10,000 8,000 6,000 4,000 2,000 0 Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec Non 9-1-1 5,990 5,438 5,773 5,956 6,743 6,449 7,243 7,149 6,259 6,541 5,643 6,167 9-1-1 12,189 11,428 12,210 12,904 14,017 14,118 15,669 16,108 14,018 12,496 11,587 12,763
The total non 9-1-1 incoming calls equaled 758,351 or 32.08% of the total calls; whereas, the total 9-1-1 incoming calls equaled 159,508 or 67.92% of the total calls. In addition, the PSAP made 71,005 outgoing calls which included notification to other service providers.
The 2013 breakdown between fire/EMS, police, and total incidents is illustrated in the figure below:
McGrath Consulting Group, Inc. Page 175
Figure 21: St. Louis County PSAP - 2013 fire/EMS, police, total calls
20,000 18,000 16,000 14,000 12,000 10,000 8,000 6,000 4,000 2,000 0 Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec Fire/EMS 2,187 1,924 2,086 2,098 2,317 2,211 2,303 2,391 2,249 2,239 2,162 2,278 Police 12,133 11,202 12,350 12,498 14,110 14,035 15,190 15,812 14,049 14,037 12,934 13,052 Total Calls 14,320 13,126 14,436 14,596 16,427 16,246 17,493 18,203 16,298 16,276 15,096 15,330
Fire/EMS accounted for 14.08% and police accounted for 85.92% of the total incidents.
Public Safety Answering Point Industry Standards Both PSAPs provide a significant amount of data inasmuch as it came from the same sources and therefore, the description and terms pertaining to data used in this section apply equally to both. In the National Standard section of this report the components of response times were listed and this section of the report will deal with only the second component “Notification Time” which includes the time it takes for the PSAP to answer the 9-1-1 call and the time it takes for that dispatch to send the notification to the department for response.
Answering Time Standard There are three agencies that have standards for communication centers – the Federal Emergency Management Agency (FEMA), National Emergency Number Association (NENA) and the Associated Public-Safety Communications Officials (APCO).
FEMA requires the National Incident Management System (NIMS) to utilize the National Fire Protection Association NFPA 1221 – 2013 edition as its standard for answering emergency calls. NFPA 1221 standard requires:
McGrath Consulting Group, Inc. Page 176
NFPA 1221 – 2013 edition Installation, Maintenance, and use of Emergency Services Communications Systems 7.4 Operating Procedures
7.4.1 95% of alarms received on emergency lines shall be answered within 15 seconds, 99% of alarms shall be answered within 40 seconds.
7.4.1.1 Compliance with 7.4.1 shall be evaluated monthly using data from the previous month.
7.4.4.1 Where alarms are transferred from the primary public safety answering point (PSAP) to a secondary answering point, the transfer procedure shall not exceed 30 seconds for 95% of all alarms processed.
7.7 Communications centers shall establish a quality assurance/improvement program to ensure the consistency and effectiveness of alarm processing.
National Emergency Number Association (NENA) The NENA serves as the only professional organization solely focused on 9-1-1- policy, technology, operations, and education.
3.0 Call taking standards
3.1 Standard for answering 9-1-1 Calls. Ninety percent (90%) of all 9-1-1 calls arriving at the Public Safety Answering Point (PSAP) shall be answered within ten (10) seconds during the busy hour (the hour each day with the greatest call volume, as defined in the NENA Master Glossary 00-001). Ninety-five (95%) of all 9-1-1 calls should be answered within twenty (20) seconds.
Associated Public-Safety Communications Officials (APCO) APCO is an international organization of public safety communication professionals. The standards set by APCO are 90% of the incoming E9-1-1 calls are answered in ten seconds or less.
McGrath Consulting Group, Inc. Page 177
Notification Time Standards Remember when one speaks of notification times they are considering the answering time and notification to the emergency provider. The following criteria are defined in NFPA 1221 edition 2013:
7.4.2 With the exception of the call types identified in 7.4.2.2 80 percent of emergency alarm processing shall be completed within 60 seconds, and 95 percent of alarms processing shall be completed within 106 seconds.
7.4.2.2 Emergency alarm processing for the following call types shall be completed within 90 seconds 90% of the time and within 120 seconds 99% of the time: 1. Calls requiring emergency medical dispatching questioning and pre-arrival medical instructions
2. Calls requiring language translation
3. Calls requiring the use of a TIY/TDD device or audio/video relay services
4. Calls of criminal activity that require information vital to emergency responder safety prior to dispatching units
5. Hazardous material incidents
6. Technical rescue
Dispatch Time: Phone Rings to FD Notified Both the Carlton and St. Louis County PSAP submitted dispatch times in the same format. There are two components within both computer aided dispatch (CAD) systems that impact the time from when the phone rings until the department is notified comprised of:
Create Time: represents the time that the dispatcher pulled up the call entry screen until the time the dispatcher hits the enter key for dispatch. Note: if the dispatcher does not close the call entry screen and leaves it open the create time will not necessarily be the correct time. The dispatcher might choose to leave the screen open in the event they wish
McGrath Consulting Group, Inc. Page 178
to recall the caller or might be busy with other incidents and not automatically close the entry screen.
Entry Time: represents the time the dispatcher pushes the enter key for dispatch and a case number is created to the time the call is dispatched to the service provider.
PSAP Notification Times The table below illustrates the 9-1-1 to Dispatch: represents the time from when the call was received in the PSAP until the service provider is notified; consisting of the Create and Entry time components, as defined above, to dispatch time.
The preponderance of CAFD incidents are handled by the Carlton County PSAP which in 2013 handled a total of 3,686 entries. Whereas, the St. Louis County PSAP handled 313 entries for the CAFD as illustrated below:
Table 38: Carlton County PSAP Notification Time - 2013 CAFD Carlton County PSAP 2013 Create to Entry Entry to Dispatch Total 9-1-1 to Dispatch EMS = 2,207 Entries 00:01:27 00:02:02 00:03:29 Fire = 1,479 Entries 00:01:40 00:02:05 00:03:45 Average 00:01:34 00:02:03 00:03:37
Table 39: St. Louis County PSAP Notification Time - 2013 CAFD St. Louis County PSAP 2013 Create to Entry Entry to Dispatch Total 9-1-1 to Dispatch EMS = 305 Entries 00:01:11 00:01:28 00:02:39 Fire = 8 Entries 00:01:21 00:01:59 00:03:20 Average 00:01:16 00:01:43 00:02:59
In both PSAPs the data indicates that they significantly exceed the standards discussed in this section for notification times. However, the Create to Entry time perhaps does not truly indicate the time the dispatch gets the information until they dispatch (notify) the proper emergency responder. In the Carlton County PSAP, the consultants were told that often the dispatcher will take the call dispatch it and enter the data soon after. This practice of course will significantly increase the Create to Entry time but gets the emergency responder on the road quicker. In the
McGrath Consulting Group, Inc. Page 179
case of the St. Louis County PSAP there are a number of reasons the call-taker will leave the CAD screen open and send the information to the dispatcher who will dispatch the emergency responders.
Perhaps a better representation of the time it takes to dispatch the emergency department would be to use the Entry to Dispatch times. Although the data would indicate a greater time to dispatch emergency units it is, in the opinion of the consultants, that three minutes or greater to receive and get the emergency responder is not a true picture.
Recommendations – Dispatch/PSAP Carlton County PSAP would benefit from renovating the facility and ensuring that minimum dispatchers on-duty would be two. Priority 2
Carlton County PSAP should encourage the cellular phone service providers to bring all of their cellular technology to a Phase II level. Priority 4
Carlton County PSAP should implement emergency medical dispatching as soon as the minimum on-duty staffing is raised to two dispatchers. Priority 1
Carlton County PSAP should develop a former quality control/assurance program. Priority 2
St. Louis County PSAP is a state-of-the-art communication center. With considerable redundancy for emergency situations. Priority 5
Both PSAPs should investigate technology that would provide a more accurate time in the category of Create to Entry time; thereby, allowing the total 9-1-1 to dispatch time to be easily identified without having to make adjustments. Priority 1
McGrath Consulting Group, Inc. Page 180
Facilities The Cloquet Area Fire District provides fire/EMS services from three fire stations: The CAFD administrative offices and training classroom is in a shared complex with the City of Scanlon in a renovated primary educational facility.
Station Ownership The three stations are not owned by the district. Station #1 is owned by the City of Cloquet, Station #2 is owned by Perch Lake Township, and Station #3 the department’s administrative offices, classroom, and apparatus area is owned by the City of Scanlon. The CAFD District Board leases each of these facilities.
Fire Station #1
Station #1 is located at 508 Cloquet Avenue in the city of Cloquet and was built in 1966, remodeled in 1990, and is owned by the City of Cloquet. The station is a two story non- combustible building. The complex is shared with the Cloquet Police Department (note: the three smaller garage bay doors to the left in the photo are utilized by the police department). The second floor houses the police department administrative and officers’ facilities; a locked door separates the police and fire areas.
McGrath Consulting Group, Inc. Page 181
Fire Department Apparatus Bay The apparatus bay floor is 5,145 square feet with another 1,050 square feet of storage/workshop space behind the truck floor. Of the seven apparatus overhead bay doors, four are 10 feet high by 12 feet wide; while the other three overhead doors are 12 feet wide by 14 feet high. All of the doors are operated by wall mounted switches and remote control in the vehicles. The Fire Protection Handbook by NFPA recommends station overhead doors should be 14 ft. x 14 ft., any doors less than that in height may create serious exit/entry issues.
The apparatus bays are heated with overhead hot water/fan units. Excess water is drained from the bay floor through a series of floor drains, which do not appear to have a catch basin to trap any spilled fuel. The Self Contained Breathing Apparatus (SCBA a.k.a. Air Masks) compressor appears to meet the OSHA standard for accidental rupture of an SCBA tank during refill. The air intake for the compressor is piped from an outside source which is a recommended practice.
Emission Exhaust The lack of any type of vehicle emission exhaust system was clearly a concern found during the interview process by the rank and file personnel. NFPA 1500 – the Standard on Fire Department Occupational Safety and Health Program – Annex A – A.9.1.5 – 2013 edition, requires that apparatus emission exhaust must be limited to the lowest feasible concentration. According to NIOSH and OSHA, removal should be by a vehicle exhaust removal system. Unfortunately, none of the stations currently have an OSHA approved emission exhaust system. The consultants recommend that a 100% emission exhaust capture system be installed in any fire station that has a planned five year or greater usage. The running of smaller gasoline engines should be done outside of the station whenever possible
The State of Minnesota does have a firefighter presumptive law for cancer: Which states: “cancer of a type caused by exposure to heat, radiation, or a known or suspected carcinogen, as defined by the IARC”. [Source: Minnesota Statutes Chapter 176 Worker’s Compensation, Sec. 176.011 Definitions, Subd. 15 Occupational disease (b)-(c)].
McGrath Consulting Group, Inc. Page 182
The consultants recommend an emission exhaust system which attaches directly to the exhaust pipe of the fire apparatus or ambulance and will automatically disconnect as the vehicle exits the station. In addition, the stations should have ceiling mounted air scrubbers to capture exhaust emitted from sources other than vehicles (e.g., power saws, generators, etc.)
Vehicle – Storage CAFD station one has seven apparatus bays, none of which allow for drive-thru access/egress; although the two bays shown (far right side) allow parking of two ambulances each back to back. There is very little room between these ambulances thereby restricting the ability to move EMS equipment, gain access to compartments, and carry out overall checkouts without moving one vehicle. The shift commanders and EMS chase/station vehicles are parked side by side in one of the bays. The following apparatus are assigned to Station #1: C-2 Battalion Pick up, chase squad 1, Engine 1, Engine 2, Medic 9, Medic 10, Medic 11, Medic 12, Tower 1, and Rescue 1. C-1 chief vehicle works out of the administration building.
Support/Living Area The support/living area is 5,780 square feet. The training room is located on the first level and accessed by a stairway from the second floor or via the apparatus bays. All living and support areas are located on the second floor. The on-duty career personnel have five single use dorm rooms with lockers. Between the dorm rooms is a washroom with a shower; these facilities can be accessed from either attached dorm room. There is an additional room with a bunk bed to accommodate two additional personnel if warranted; however, the top bunk is extremely close to the ceiling and rather impractical for a dorm arrangement.
The support/living area has a combination battalion chief/station office, a laundry room, day room, kitchen and eating area. Notable, within the eating area is a custom built, handmade table with the fire department emblem incorporated within, which was constructed by department members. The facilities for men and women are comparable. The union was given permission and constructed a full sauna on the first level behind one of the shops.
McGrath Consulting Group, Inc. Page 183
Station #1 currently has a fire pole in place which is utilized for faster egress to the apparatus bay area. Once heralded as the time-saving successor to stairs, the fire pole is, after 150 years, sliding towards extinction. The Occupational Safety and Health Administration database reveals hundreds of fire pole related injuries over the past 30 years (1984-2014), ranging from broken ankles and toes to fractured skulls. The NFPA has called for the removal of all poles from U.S. stations “due to safety hazards.” Therefore, modern stations are often a single story thereby eliminating the need for stairway or pole. In some modern fire facilities the pole has been replace with a slide – much like those found of children playgrounds. No matter the conduit, getting firefighters to the equipment as quickly and directly as possible remains critical.
Facility in General The station has a natural gas emergency generator in case of power outage and is supplied by natural gas. However, the generator only supplies about 50% of the facilities electric needs. One must remember that the worse conditions become, and the longer the outage lasts, the more important it is to have emergency responders able to function with 100% of necessary electrical resources. Therefore, the consultants recommend that any fire station which plans to be utilized for an additional five years should have an emergency power source which can provide 100% of the facility’s needs.
The station is heated with a hot water boiler and has ducting for air conditioning when needed. Only the police station has a fire suppression system (sprinklers) system throughout their portion of the facility. The fire station has limited sprinkler protection on the first floor the shop, storage, and classroom behind the apparatus bays. No other part of the fire station, including the fire apparatus bays, has fire suppression protection. The entire facility is protected by local single-station smoke detectors; however, neither the sprinkler or smoke alarms are monitored by an outside source such as Carlton County PSAP.
There are approximately 150 fires in fire stations annually in the United States of which 37% are the structure themselves, 44% are the apparatus, and 19% are miscellaneous or undetermined (source: U.S. Fire Administration). The leading cause of fire station fires is electrical followed
McGrath Consulting Group, Inc. Page 184
closely by cooking occurring often when crews respond to an emergency and forget to shut off the stove. The consultants recommend that all new and existing fire stations in which it is anticipated will serve the district for five or more years be equipped with a fire suppression (sprinklers) and fire alarm system that is monitored by the PSAP.
Future Use of Station #1 The fire chief needs to move his administrative team (currently just himself) to the same facility in which the management team is located. It is very obvious to the consultants that the fire chief needs to make several significant changes, two of which are: a second-in-command that complements any leadership or management traits he might find are not his forte; secondly, to show his presence, provide praise, and promise a brighter future. Currently, the existing Station #1 is inadequate in providing the atmosphere needed in the CAFD.
In the opinion of the consultants, even if the city were to move the police department to a new facility, the existing facility does not meet the current and future needs of the fire district. A new modern facility consolidating Station#1 and #3 into one headquarters facility would better serve the district. It should be noted that the City of Cloquet is conducting a facility assessment and future needs study of the facilities, including Station #1, concurrently as this study is being conducted. Consideration is being given by the property owner to utilize the current Station #1 property for another use other than a police/fire station occupancy.
GIS Time/Distance Mapping As discussed in the Response Time section of the report, the board of directors should not adopt either NFPA 1710 or NFPA 1720, but rather should attempt to meet as many of the standards within their fiscal capabilities and those that are in the best interest of the district. Inasmuch as neither the career nor volunteers (paid-on-call) reach the threshold, the AHJ (District Board) can choose which of the two standards is more adaptable for the coverage area. The consultants recommend NFPA 1720 as a more pragmatic choice.
McGrath Consulting Group, Inc. Page 185
Using the population of the City of Cloquet at 12,124 and a size of just under 36 square miles, the NFPA 1720 Demand Zone category of Suburban requires a 10 minute response. Therefore, the GIS maps utilized in the Facility section will show a time of 10 minutes to illustrate the distance the apparatus should achieve. All drive time distances are under normal traffic and weather conditions:
Figure 22: Station #1 - GIS 10 Minute Drive Time/Distance
The white pin represents the location of Station #1; the green area represents the distance the apparatus can reach within a 10 minute drive time. It is obvious based on the mapping that the department can cover all of the downtown area of the City of Cloquet in a 10 minute drive time, but the department leadership should strive for a response time under 10 minutes. It is assumed the question would be asked “if NFPA 1710 were utilized requiring a 4 minute drive time how much of the downtown area of the City of Cloquet could be covered?” The figure below illustrates a 4 minute drive time from Station #1:
McGrath Consulting Group, Inc. Page 186
Figure 23: Station #1 - GIS 4 Minute Drive Time/Distance
The answer: all of it. Therefore, using the 10 minute drive time example, which is more applicable to the entire district, the above figure illustrates the entire downtown section of the City of Cloquet can be reached from Station #1 in four minutes.
McGrath Consulting Group, Inc. Page 187
Station #2
CAFD Station #2 is located at 2779 Big Lake Road in Perch Lake Township and was estimated to have been built in the late 1970s. Over time, two additional apparatus bays were added to the side of the building; however, the consultants were unable to find anyone who could approximate when that occurred. The station is one story, non-combustible building that is attached to the Perch Lake Township offices. Station #2 is located 6.99 miles from Station #1 via county highway 7.
Apparatus Bays The apparatus bay floor is 3,460 square feet. The station has four apparatus bays with two exiting from the front and two from the side of the facility. Each bay has 12 foot by 12 foot overhead doors and is operated by both wall switches and remotes in the apparatus. All four bays are single unit deep-front entrance bays only, so the apparatus must back into the station at all times.
Water is drained from the apparatus bay floor through a 2 foot by 2 foot drain in each section of the truck floor. The truck floor is heated by propane-fired overhead ceiling heaters. There is no total vehicle exhaust capture in the station and no other ventilation fans. Capture of apparatus exhaust emissions is a health issue and although this is a volunteer-staffed station, all employees McGrath Consulting Group, Inc. Page 188
should be protected from hazardous materials regardless of their exposure time to such airborne hazardous materials.
Updated to the classroom (510 square feet) and a single office (100 square feet), which lies between the apparatus floor and township offices, was the heating system to provide air conditioning. The classroom is designed as a multi-purpose room and contains chairs, television, and microwave oven for the membership.
The station is heated with propane forced air heat and air conditioning. The station has a complete fire alarm system that is monitored (by the Carlton County PSAP) with both heat and smoke detectors and also has a heat sensor alarm for low heat warning. There is no fire suppression (sprinkler) system or any type of emergency generator to address power outages.
Vehicle Storage The apparatus assigned to this station is as follows Engine 21, Engine 22, Brush 21, and Tender 21.
Support/Living There are no overnight amenities in this facility. There are no washroom facilities within the fire station; rather, access to a washroom requires entering the township hall portion of the building. These two areas are locked by a single door with the lock being on the fire station side.
Facility in General The CAFD Station #2 is in good general condition and could, with some renovation, support a small 24/7 on-duty staff in the future.
GIS Time/Distance Mapping The 10 minute drive time/distance from Station #2 is illustrated in the GIS map below:
McGrath Consulting Group, Inc. Page 189
Figure 24: Station #2 - GIS 10 Min Drive Time/Distance
The white pin represents the location of Station #2, the red colored area represents the distance a piece of apparatus can reach within 10 minutes under normal traffic and weather conditions.
Station Overlap Station #1 and Station #2 The term station overlap refers to the area within the CAFD can be reached by more than one station within the NFPA 1720 10 minute drive time. Ideally a slight amount of overlap is desirable, as it indicates that the stations are placed far enough apart to cover the maximum amount of area. Excessive overlap is not desirable because the duplication of resources is not needed.
The figure below illustrates the overlap between Station #1 and Station #2 with a 10 minute drive time:
McGrath Consulting Group, Inc. Page 190
Figure 25: Overlap Stations #1 and #2
The green area is the 10 minute drive time distance that can be reached from Station #1 (white pin in center of the green). The red area is the 10 minute drive time distance that can be reached from Station #2 (white pin in center of red). The brown area represents the overlap – or area that both stations can achieve in a 10 minute drive time.
Station #3
McGrath Consulting Group, Inc. Page 191
CAFD Station 3 is located at 2801 Dewey Avenue in the City of Scanlon and was estimated to be built in the 1950s. It was originally constructed as an elementary school and also housed the buses for the school district. The City of Scanlon currently utilizes a portion of the facility as its city hall complex. The city hall building is a one story building that may be either non- combustible or ordinary construction depending on the roof composition in various sections. The city hall complex is comprised of is approximately 15,812 square feet in its entirety. Station #3 is 2.08 miles from Station #1 via MN-45
The building is not Americans with Disabilities (ADA) compliant. There is no emergency electrical generator in case of extended power failures, and there is no fire suppression or fire alarm system for the building. The apparatus bay area does not have any type of vehicle emission exhaust system. The facilities for men and women are equivalent in the building. There is a detached garage that the department uses for storage. The garage is 400 square feet of space for the storage and is heated.
Apparatus Bays The apparatus floor is 2,050 square feet. Although there are four bay doors pictured in the station photo, only two of the bay doors open and are utilized by the fire department. Both bays are double deep, non-drive-thru which allows for apparatus to be parked back to back. The other two bays are utilized by the public works department of the City of Scanlon. The apparatus bay overhead doors are 10 feet high by 12 feet wide controlled by both wall-mounted switches and remotes in the apparatus. Due to the size restriction (height) of the apparatus bay opening, the CAFD has had to order custom-made apparatus that will fit into this facility; not only is this expensive but limits the versatility and equipment that can be carried on the apparatus. Therefore, the preponderance of the CAFD apparatus cannot be assigned to this facility.
Vehicle Storage The apparatus assigned to Station #3 includes: Brush 31, Engine 31, antique Old “36” and Squad 31 and training/safety car are parked outside. It appears that one smaller vehicle might fit behind
McGrath Consulting Group, Inc. Page 192
the engine however, at no time during the study were there four vehicles in this facility. Also, outside of the building are a number of regional training props and vehicles including a 53’ foot semi mobile Dragger trainer, a Chevy rehab vehicle, a 31 foot trailer training roof simulator, a diesel F350 tow vehicle, and a 40’ mobile training tower that is hydraulically raised into position. The CAFD has been most aggressive in obtaining regional training aids through a series of grants.
Support/Living Area There are no on-duty/paid personnel assigned to the station. One might argue that the CAFD could request additional lease space to create living quarters for on-duty personnel but the size of the apparatus bay and height restriction, distance from Station #1 (2.08 miles), and the general layout of the facility does not warrant this consideration.
Administrative Office/Training Classroom Pictured are: the fire chief’s office, combined (public education officer, training division chief, assistant division training chief, fire prevention, recently the battalion chiefs) work area, and adjoining classroom with a storage area between the offices and classroom.
Figure 26: Fire Chief's Office
McGrath Consulting Group, Inc. Page 193
Note the lack of privacy inasmuch as there are not even partition walls to the ceiling. There is a serious need to add an administrative assistant, but finding adequate office space would be a challenge.
Figure 27: Work Area for Multiple Employees
Figure 28: Training Classroom
McGrath Consulting Group, Inc. Page 194
There is considerable distance between the fire station itself and the training classroom/ administrative offices. If the chief were to exit his office and enter the hallway he would need to walk through the Public Works garage area in order to access the fire station.
The administrative area is comprised of approximately 828 square feet, the training classroom has 600 square feet, and the storage area between the two, 288 square feet; therefore, the CAFD occupies total of approximately 1,716 square feet in addition to the apparatus bay area. A serious concern is the lack of privacy afforded to anyone who is assigned to work in the administrative office area.
Facility in General The intent of the district board was to utilize temporary housing of the administrative offices until which time a long-term station location and apparatus needs study could be completed. As in many cases, one of the best assurances that an occupied space will become permanent is to think and refer to it as temporary. With that being said, the initial idea was sound, but the size of the CAFD organization not including potential growth, has exceeded the capabilities of the facility.
Future Use of Station #3 The consultants will recommend that the CAFD no longer leases space from the City of Scanlon; rather there is a need to build a modern headquarters facility housing the CAFD in which the administration, district board offices, key support services, apparatus, and personnel are located. This should be accomplished by consolidating Station #1 and Station #3 into a new headquarters facility.
GIS Time/Distance Mapping The 10 minute drive time/distance from Station #3 is illustrated in the GIS map below:
McGrath Consulting Group, Inc. Page 195
Figure 29: Station #3 - GIS 10 Min Drive Time/Distance
The white pin represents the location of Station #3 and the blue area represents the distance that can be covered by apparatus from Station #3 within 10 minutes.
Station Overlap Station #1 and Station #3 The figure below illustrates the overlap between Station #1 and Station #3 with a 10 minute drive time:
McGrath Consulting Group, Inc. Page 196
Figure 30: Overlap Station #1 & Station #3
The green area is the 10 minute drive time/distance from Station #1 (white pin to furthest to the left in the brown area). The red area is the 10 minute drive time/distance from Station #3 (white pin furthest to the right in the brown area). The brown area is the area in which both stations can reach within a 10 minute drive time/distance.
The overlap is extremely excessive and suggests that it represents a vast duplication of resources which could be combined in a consolidated new headquarters station which would be more cost- effective and efficient. It is understandable that at the onset of the consolidation of the three departments that a city might wish to ensure it maintained its own fire department for a variety of reasons, including insurance if the consolidation failed. It is often found however, that conventional wisdom and analysis of resources reveals the duplication of two fire stations within 2.08 miles is not warranted or affordable.
McGrath Consulting Group, Inc. Page 197
Overlap of Stations #1, Station #2, and Station #3 The GIS map below illustrating the overlap when all three stations are placed on a single map can be confusing to read; therefore, the consultants will define what each color represents:
Table 40: Overlap All Three Stations
The red area represents the drive time/distance from Station #3 @ 10 minutes. The green area represents the drive time/distance from Station #1 @ 10 minutes. The light blue represents the drive time/distance from Station #3 @10 minutes.
As for the overlap: the brown represents the overlap between Station #2 and Station #1. The darker blue represents the overlap covering areas of the overlap between Station #1 and Station #2. The brown and darker blue together represents the amount of overlap between all three of the CAFD stations.
Overlap Findings The overlap between Station #1 and Station #2 is an acceptable overlap. The overlap between Station #1 and Station #3 is quite excessive. It is most unusual to have any overlap between the
McGrath Consulting Group, Inc. Page 198
two remote stations which again suggests Station #3 should be given consideration for consolidation.
Consolidated Headquarter Station The CAFD Board should consolidate Station #1 and Station #3 into a new modern headquarters station. A consolidated headquarter station also means a consolidated workforce where career, paid-on-call, and paid-on-premise (defined in the Staffing section) would occupy the facility. The term often heard during a study of “career station and volunteer station” needs to be a thing of the past. This will be a significant culture change for some members and might be resisted by the union; however, this is not about what is best for any certain group (career, volunteer, union, etc.); rather, it needs to be about what is best for the people needing emergency services within the entire CAFD response area.
Although small in number the consultants believe this vital change will result in some casualties amongst a few members. The challenge for the district board will be to invest in the future of the CAFD and it is understandable that there will be a resistance to spend money when it didn’t have to in the past. The consultants anticipate that the City of Cloquet will request that the fire department find a different facility as they will no longer allow them to lease property that is needed for other services provided by the city. The district’s request for additional funds through a tax referendum will likely be met with little support from taxpayers. The district must explain to those constituents why it is necessary to raise taxes now when it worked fine yesterday? An effective public education campaign would be necessary to educate and sell the reasons for supporting such an increase.
Addressing the Need for a New Facility When considering a new fire/EMS facility, the future needs must be considered as important as the current needs in planning a facility. There needs to be reasonable assurances that the district will not find itself facing the same space and overcrowding anytime in the foreseeable future. The issues to address in planning and building a new facility:
McGrath Consulting Group, Inc. Page 199
Fire/EMS Needs - Adequate planning for all aspects of housing fire-rescue and EMS services is a must. Currently, EMS calls reflect approximately 85.57% of all emergency calls, but this is not to suggest that planning for fire service needs is not important as well.
Facility for On-duty Personnel – all new facilities should have the ability to support on- duty personnel 24/7. This should include living/sleeping facilities to house career staff as well as paid-on-premise and paid-on-call personnel. Adequate planning must include the ability to house staff for extended periods of time due to unforeseen emergencies such as environmental/weather conditions, various types of long term incidents, civil unrest, and the like. Ensuring that adequate apparatus bay space is provided for current as well as future considerations is a must.
The placement of new facilities should be based on consideration of the following factors: o Response times o Potential response delays o Traffic control o Future service needs o Paid-on-call proximity o Risk assessment o Safe egress to roadways o Available property o Functionality and purpose of the facility o Citizen perception o Costs
Response Time Response times are perhaps the most important factor when addressing station location(s). Obviously, the district wants to strategically locate station(s) that will be able to achieve the greatest coverage area within the shortest time frame.
McGrath Consulting Group, Inc. Page 200
Potential Response Delays Future fire station placement can be a challenge due to natural and manmade obstacles. However, in the case of CAFD, the challenges are limited mostly to a large response area.
Traffic Control The department currently does not have much of a challenge with traffic congestion; however, this factor should be considered for future response impacts. When needed, the district can minimize traffic delays with the installation of additional preemption equipment on all traffic control devices throughout the city (most likely not needed outside the city limits). Preemption equipment allows emergency response vehicles to control the signal of the traffic control devices in order to allow travel through the intersection under a “green light” condition. Traffic signals are equipped with a sensor that picks up a flashing light (set frequency and duration) transmitted from the emergency vehicle. Once activated, the signal lights are changed to a predetermined sequence (i.e., green for the emergency vehicle and red for all other directions) as determined by the fire department. Once the vehicle clears the intersection, the traffic control returns to its normal sequence. Preemption equipment can also be set to operate from the emergency vehicle’s siren; however, the consultants would recommend light activation rather than siren activation.
The cost of installing preemption equipment is considerably less than building, staffing, equipping, and maintain additional fire/EMS stations.
Future Service Needs Although the population has diminished slightly, potential for growth in the district is possible. The district board needs to work in conjunction with the city and county planning departments to ensure they are aware of impacts with respect to both resource and fiscal considerations as they relate to new growth which might impact fire/EMS services.
McGrath Consulting Group, Inc. Page 201
Volunteer (Paid-On-Call) Proximity Combination staffing methodologies are based on a unified team of volunteer (paid-on- call), part-time, and career personnel. It is important to consider the residential locations of current and potential future members in proximity to the new fire station. Therefore, members that are assigned to a station may or may not have a greater or shorter travel distance resulting in extended or reduced response times for the volunteer (paid-on-call) stations.
“Build it and they will come” worked well in the movie but there is little correlation between building a new station and a sudden influx of new members.
Risk Assessment Associated with future service needs, is that the risk of fire and EMS demands will increase. Commercial development brings greater traffic, which slows emergency response vehicles. The city, although now experiencing growth, will experience the aging of existing buildings, and buildings not receiving necessary maintenance will increase the risk of fire. New commercial development often results in abandonment of older (smaller) businesses, leaving some older structures vacant; again, this can increase the risk of fire. The economy plays an additional factor in the risk of fire and EMS incidents, as does the social economics of the area. Another major factor involving risk is the total lack of fire prevention efforts by the CAFD. It was found during the interview process by the consulting team that there were many business and industrial occupancies that worked closely with the fire district. It was also found that there were major industrial occupancies which were considered “high hazard” in nature as well as large in size that would not permit fire department personnel on their property. This is very troubling and also quite difficult to develop any type of risk management or pre-plan modeling.
McGrath Consulting Group, Inc. Page 202
Safe Egress to Roadways It is essential – especially in volunteer (paid-on-call) departments – for members to be able to respond to the station in a timely and safe manner. In addition, there is a need for the emergency vehicles to egress from major roadways in a safe manner without traffic delays.
This is most often accomplished by the installation of preemption traffic control equipment, which can be triggered from the station prior to the exit of emergency vehicles onto the roadway. The obvious reason is that vehicles stopped at a traffic signal are unable to yield to emergency vehicles without potentially putting themselves in a dangerous situation. The consultants would recommend locating new stations a minimum distance of one-quarter block from any major intersection, and that the egress point is controlled by an emergency traffic signal. Historically, there have been federal “grants” to assist in funding of this type of equipment as well as preemption equipment.
Available Property Available property might be an issue at this time. However, that might not be the case in the future. Therefore, it is advantageous for the district to purchase property in anticipation of fire/EMS facility needs. If in the future it turns out that the property is not in the most advantageous location, the property can be sold or utilized for other district needs.
The consultants caution against the lure of “free property”. Free property is hard to beat; however, the long term needs of the District must be weighed against the cost of building in the wrong location simply because it was free.
Functionality and Purpose of the Facility The design and size of a fire/EMS facility is dependent on the use of the building. Most communities that build new fire/EMS facilities are reluctant to build a structure large enough to address future service needs – not because they do not see the need, but
McGrath Consulting Group, Inc. Page 203
because public opinion often becomes negative when municipal buildings are built larger than what citizens perceive the current needs to be. However, an investment to provide for future needs will save tax dollars in the long run, since construction costs to add and remodel only escalate over time.
Additional facilities are normally smaller in size (satellite stations) and designed to accommodate only the emergency response teams’ needs and associated fire and EMS apparatus.
Another consideration is to build larger facilities that can also accommodate community functions. Although security needs to be considered with regard to access to some of the areas within the station, fire stations that can also be utilized by the public bring the district/department and citizens together.
Citizen Perception Perception is reality when it comes to the feeling of safety and security when addressing police, fire, and EMS protection. Moving a fire and/or EMS station can be a very traumatic occurrence within a community. If an existing fire and/or EMS station is moved further from “my residence,” the perception is that “my protection” has diminished, whereas if the fire and/or EMS station is moved closer to “my residence,” the perception is that “my protection” has improved. Everyone wants a fire/EMS station near them; however, no one wants a fire/EMS station next door or across the street from them. Perhaps the best description comes from a city administrator who went through the process of moving a fire station, who stated “If we could anesthetize all the citizens, we could consider relocation of the other facility.” This statement underscores the emotions that can be encountered when relocating a fire station.
Cost Every governing body strives to be cost-effective when it comes to spending taxpayers’ dollars. However, it cannot be overlooked that the term “cost-effective” has two parts;
McGrath Consulting Group, Inc. Page 204
cost being the dollars needed to provide the service, and effective being the ability to provide the proper level of response and services. Both parts are critically important when projecting future levels of emergency service protection, and neither part may override the other.
CAFD Future Station Inasmuch as a new facility recommendation is a consolidation between Station #1 within the City of Cloquet corporate limits and Station #3 within the City of Scanlon corporate limits, it would be prudent to attempt to locate the new facility somewhere between the two existing stations. No one area is more important than another however, the call volume is greatest within the corporate city limits of the City of Cloquet so this factor needs to weigh into the consideration of the new site.
Suggested Station Components The consultants are not architects, and therefore are not qualified to recommend the design of the facility; however, the consultants would recommend that new fire/EMS facility have a minimum of seven drive-through apparatus bays.
From experience, the consultants suggest consideration of the following features as a new facility is constructed or as funding becomes available for modernization and refurbishing:
Each fire apparatus bay should be 20’ wide and 80’ long. This allows areas in the front and rear of each apparatus for minor work or cleaning. EMS vehicles require less room, but this size bay allows for the movement of apparatus (either fire or ambulance).
Drive-through bay requires ample turning radius in the rear of new stations. Design in a way to avoid parking of private vehicles in the rear driveways. The design of this area should be based on the widest turning radius of current or known future apparatus.
The apparatus floor should have trench drains adequate in length to handle excess water on the floor. A trench drain should be under all apparatus, with a slight floor pitch towards the drain.
McGrath Consulting Group, Inc. Page 205
Minimum bay door size should be 14’ wide by 14’ high.
There should be two service doors at each end of the apparatus floor.
Exhaust emission removal system – no less than 100% effective capture.
Storage should be available for the following: . Records . General . Kitchen pantry . Hose, SCBA, tools, etc.
Two restrooms proximal to offices; one male, one female.
Storage for personnel protective clothing should be raised off the apparatus floor for cleaning and to allow airflow for drying purposes. Each storage area should be a minimum of seven square feet per firefighter.
Public restrooms – one male, one female – both handicapped-accessible, directly off the public reception area.
Office work area with ample filing space and cabinets.
Personnel restrooms/locker area – one male, one female: Shower facility Enough sinks and toilets for projected full-time staffing thirty years into the future Locker rooms attaching to the shower areas, with ample lockers for all future career employees (if applicable)
Exercise room with equipment.
Study/library/quiet area room.
Kitchens designed to anticipate future career staffing at each facility.
Kitchen should be equipped with commercial appliances.
Eating area adjacent to kitchen for personnel.
Lounge/dayroom – includes television, chairs, phone, etc. for the correct number of anticipated personnel.
McGrath Consulting Group, Inc. Page 206
Sleeping/bunk room – minimum of eight bunks, each bunk area should have a door to gain access and share washroom/shower facility between bunk rooms with locks on each shard washroom door. Minimum storage for personal belongings in each bunk room.
(Optional) Officer’s bunk – room isolated from general bunk area with small desk and work area – includes minimum storage for personal belongings.
Single large training room. Room design should have removable tables and chairs to accommodate a minimum of forty individuals for joint area training as well as to conduct a full departmental meeting. The classroom should be equipped with a computer, LCD projector ceiling mount, chalk and white boards, smart board, and easels for flipchart paper.
Hose and drill tower (no live burns).
Alarm alerting system and intercom throughout the station.
External emergency phone for citizens, if personnel are out of the station, connected directly to the PSAP.
Entire building must comply with the Americans with Disabilities Act.
Station should be set back from the street a minimum of 45 feet so apparatus can be pulled out for maintenance and daily apparatus checks.
Public parking and assigned employee parking should not interfere with egress of emergency apparatus.
Building material should be durable and easy to maintain.
Station should have a complete fire suppression sprinkler and fire alarm system tied into the PSAP.
Natural gas emergency generator that powers a minimum of 100% of the station. Automatic start and weekly check feature with a manual override feature.
Keyless entry pads for station doors – all external doors self-locking.
New Facility Costs In addition to construction square footage costs, there are project soft costs such as:
McGrath Consulting Group, Inc. Page 207
Land costs Architectural/Engineering Fees Survey/Topography Construction Management/Project Management Sewer and Water Connections Plan Review & Permit Fees Dib Advertising Costs Testing (Geo Technical, Construction) Document Printing Utility Re-routing Soil Remediation (if required) Mechanical Systems Commissioning/Monitoring Builders Risk Insurance Data/Telecom Wiring Furniture/Fixture/Equipment (FFE)
Furniture, Fixture, Equipment (FFE) The term FFE is used by architects to represent the cost of placing furniture, fixtures, and (non- emergency) equipment in a new facility. Depending on the type of occupancy and geographic location in the United States, the industry uses a percentage ranging from 10% to 15% of the total building cost. An estimated FFE cost of 12 % of the total building cost will be utilized. Therefore, the FFE costs of the new facility would be approximately $840,000.
The total estimated cost of the new facility is illustrated in the table below:
Table 41: New Facility Cost Station Estimated Sq. Ft. Cost Sq. Ft. Costs FFE Costs Total Costs
New Facility 28,000 $250 $7,000,000 $840,000 $7,840,000
McGrath Consulting Group, Inc. Page 208
Storage Facility for Large Training Resources The CAFD has been very successful in obtaining regional training aids and props, which include complete vehicles. These resources need to be located in an enclosed building such as a metal frame structure located on the property of the new headquarters station. The items to be housed in the facility would include:
Table 42: Training Vehicle Storage Number Of Training Item Length (ft.) 2 Semi-Tractor 24 1 Mobile Live Fire Training Unit 53 Combined Semi - Live Fire Training Unit 70 1 Mobile Training Tower 38 Combined Semi - Mobile Training Tower 54 1 Mobile Driving Simulator Trailer 38 1 Ventilation Trailer 30 1 Training Pick-up Truck 19
The CAFD will need to determine if they want the ability to store the semi-tractor attached to the unit they are pulling when in storage. This will eliminate the detaching and attaching of the unit each time it is to be moved. In addition, the decision should be made if the building should be designed with drive-thru doors to eliminate the associated problems of backing the units into a building which should require a minimum of two individuals. The drive-thru feature would allow a single person to exit and park the unit.
The most significant costs will be the thickness of the cement floor and building ramp(s) to allow the vehicle to enter and exit. It is estimated that the weight of these units could require a six inch cement floor. The estimated costs of the training units are illustrated in the table below:
Table 43: Estimated Costs Training Unit Storage Storage Estimated Sq. Ft. Cost Sq. Ft. Costs Floor Misc. Total Costs Metal Building 3,900 $20.00 $78,000 $19,500 $11,700 $109,200
McGrath Consulting Group, Inc. Page 209
Recommendations – Facilities Station #1 and Station #3 should be consolidated into a new headquarters facility with seven drive-thru apparatus bays. Priority 5
The planning for a new headquarters fire station which will house apparatus from existing Stations #1 and #3 including the fire department administration, training, fire prevention, classroom, and meeting rooms should begin immediately with a final construction date of 18 months. Priority 1
The new headquarters fire station should be owned by the Cloquet Area Fire District Board. Priority 5
The location of the new headquarters facility should still allow a four-minute drive time to the downtown area of the City of Cloquet. Priority 5
All new fire/EMS facilities should be equipped with a total capture emission exhaust system that is OSHA approved. Any facility that it is anticipated will continue to serve as a fire station for the next five years or greater should be immediately renovated to include the emission exhaust system. Priority 1
Planning should begin to provide on-duty 24 hour facilities at Station #2. Priority 3
Fire department administration offices should be moved to the new headquarters facility placing fire department leadership, management team, and headquarters on-duty shift personnel in the same facility. Priority 5
Consideration to the list of features for a new headquarters station (listed in the report) should be built into the new headquarters facility. Priority 5
The costs for the new headquarters facility and metal storage building for training units is an estimate and would need to be further confirmed with an architect. Priority 5
The fire pole in existing Station #1 should be removed as long as the station is in service. Priority 1
All fire stations should have a fire suppression system (sprinklers) and fire alarm system that is monitored by one of the PSAPs. Priority 2
McGrath Consulting Group, Inc. Page 210
Apparatus The Cloquet Area Fire District provides service to its 216 square mile district in Carlton County and a small portion of St. Louis County in Minnesota from three stations. The table below illustrates the apparatus assignments and other pertinent information:
Table 44: CAFD Apparatus Assignments Station #1 Apparatus Apparatus Manufacturer Apparatus Type Year Mileage Hours Pump Tank Engine 1 E-One/Freightliner Pumper 1994 20,366 2,252 1,250 1,000 Engine 2 E-One/Freightliner Pumper 2001 31,223 OFS 1,750 1,000 Tower 1 E-One/ Cyclone Tower Ladder 95' 2001 10,882 1,416 2,000 300 Rescue 1 E-One/Typhoon Heavy Rescue 2008 6,460 631 n/a n/a Squad 1 GMC1500 Chase Vehicle 2006 24,825 n/a n/a n/a Medic 9 Ford/Lifeline Ambulance 2010 115,147 n/a n/a n/a Medic 10 Ford/Lifeline Ambulance 2013 9,180 n/a n/a n/a Medic 11 Ford/Lifeline Ambulance 1997 43,666 n/a n/a n/a Medic 12 Ford/ Lifeline Ambulance 2003 199,280 n/a n/a n/a Chief 2 - BC Chevy 1500 P/U Command 2012 11,670 n/a n/a n/a Station #2 Apparatus Apparatus Manufacturer Apparatus Type Year Mileage Hours Pump Tank Engine 21 Crimson/Freightliner Pumper 2003 7,285 463 1,250 1,000 Engine 22 Crimson/Freightliner Pumper 2008 7,637 355 1,500 2,500 Tender 21 Int'l/E-One Tender 2013 2,758 89 500 3,000 Brush 21 Ford F550 Brush Truck 2008 28,133 n/a 150 200 ATV Gator John Deere Off Road Rescue 1999 n/a n/a n/a n/a Gator Trailer North Country 8' X 10' Trailer 1994 n/a n/a n/a n/a Station #3 Apparatus Apparatus Manufacturer Apparatus Type Year Mileage Hours Pump Tank Engine 31 Pierce/Int'l Pumper 2006 1,073 7,484 1,250 1,000 Brush 31 Chevy 3500 P/U Brush Truck 2012 1,160 n/a 150 250 Squad 31 Chevy Suburban 1st Response 2004 121,382 n/a n/a n/a Lighting Unit Magnum MLT5060 Light n/a n/a n/a n/a n/a Chief 3 - Training Chevy Suburban Train/Safety 2011 38,865 n/a n/a n/a Antique Pumper Ford/Pirsch Pumper 1936 n/a n/a n/a n/a Administration Vehicles Apparatus Manufacturer Apparatus Type Year Mileage Hours Pump Tank Chief 1 - Fire Chief Chevy Tahoe Command 2012 43,870 n/a n/a n/a
McGrath Consulting Group, Inc. Page 211
Misc. Apparatus/Equipment Apparatus Manufacturer Apparatus Type Year Mileage Hours Pump Tank Utility 4 Ford F350 Tow Vehicle 1994 59,672 n/a n/a n/a Training 1 Volvo Semi Tractor Tow Vehicle 1993 76,340 n/a n/a n/a Training 2 Freightliner Tractor Tow Vehicle 1991 27,500 n/a n/a n/a Utility 31 Chevy 2500 Rehab Unit 1998 134,962 n/a n/a n/a Smoke Trailer Dragger Training Trailer 2010 n/a n/a n/a n/a 31', Roof Simulator Fire/Vent FEMA Trailer 2013 n/a n/a n/a n/a 40', Trailer Riverside Metal Corp 3 Story Tower 2011 n/a n/a n/a n/a
In addition to the apparatus listed above the CAFD was attempting to sell Tender 22 which is a 1994 Ford mounted vehicle with 62,170 miles and carried 1,500 gallons of water.
Apparatus Ownership All of the apparatus and vehicles utilized by the fire department are owned by the Cloquet Area Fire District.
Apparatus Maintenance At the time of this study the apparatus preventative maintenance program was being changed. Historically the department members and local contractors performed the preventative maintenance. The preventative and minor repairs not requiring an emergency vehicle technician (EVT) will be performed by the City of Cloquet Maintenance Department. Preventative maintenance will be based on a 3,000 mile criteria and repairs, parts, and fluids will be procured and paid for by CAFD. The city maintenance will be paid for the time spent on maintenance by the district.
The City of Cloquet maintenance facility has two mechanics, neither certified; both working a normal workweek schedule (7:30 AM to 4:00 PM). Although one held the title of supervisor both performed mechanical work. Fire department vehicles obtain their fuel through the city in a joint purchase arrangement. Emergency fuel requirements (fuel brought to the scene) is obtained locally; however, there is no written agreement for this procedure.
McGrath Consulting Group, Inc. Page 212
The ladder testing is done annually for both aerial apparatus and ground ladders by American Testing Center (Test and Inspection Services) located in River Falls Wisconsin. The pump tests are completed annually by Fire Safety USA Inc. located in Rochester, Minnesota, but has a mechanic and mobile unit more proximal to Cloquet. Fire Safety USA Inc. also performs specialty or major apparatus repairs performed by an EVT. Emergency, or after hour’s apparatus service will be done by the City of Cloquet mechanics or Fire Safety USA Inc. depending on the problem encountered.
A full set of maintenance records are maintained by the agency doing the work and by the CAFD, both in paper format as well as imported into the record management system ImageTrend™.
Condition of Apparatus and Vehicles All the apparatus and equipment appeared to be sufficient and in good working order. The equipment on the vehicles appeared to satisfy the NFPA 1901 requirements of equipment and hose needed to be carried on fire apparatus. The list of equipment ISO requires to obtain full credit has changed with a major update of the new schedule in 2013 to reflect more closely with the NFPA 1901 standard (see Appendix F)
Odometers vs. Engine Hour Meters An hour meter is a gauge or instrument that tracks and records overall elapsed time that the engine is actually running and is normally displayed in hours and tenths of hours. The table “Apparatus/Vehicle Inventory” lists the apparatus/vehicles that have both odometers and engine hour meters.
The majority of hour meters are used to log running time of equipment to assure proper maintenance of expensive machines or systems. This maintenance typically involves replacing, changing or checking parts, belts, filters, oil, lubrication or running condition in engines, motors, blowers, and fans, to name a few.
McGrath Consulting Group, Inc. Page 213
Fire trucks, ambulances, and police cars may all have significantly higher running times compared to mileage. Fire trucks can be running for hours at the scene without clocking a single mile. The same is true with ambulances whose on-scene idle time might be less than a fire engine but occurs more frequently. If maintenance is performed on these vehicles based on odometer readings only, engine life may be affected. Maintenance personnel understand the wear issues surrounding a vehicle’s engine hour time compared to road miles; and therefore Board members should not base replacement needs on apparatus/vehicle appearance and mileage but take into account all factors including engine hours.
Sufficiency of Apparatus Sufficiency of apparatus can be considered in two divergent ways: the amount of apparatus and its capability. The consultants have observed fire departments that have an abundance of apparatus, often resulting in apparatus that is rarely, if ever, deployed; or, more apparatus than the department is able to staff. In other instances, departments are under-equipped and/or the apparatus is lacking the tools required to perform tasks on the emergency scene.
At the time of the study, there appeared to be an appropriate number of engines, trucks, rescues, ambulances, and tenders to operate efficiently. The consultants were concerned with the storing arrangement of the four ambulances assigned to station #1 which are parked in two bays back to back with little (almost none) room between them. Consideration should be given to placing one ambulance at station #2 especially if in line with the recommendation of paid-on-call participation in patient non-emergency transfers (until the new headquarters station is in service consideration to placing an ambulance in Station #3 versus #2 should be investigated).
Apparatus Replacement Fire apparatus, like all types of mechanical devices, have a finite life. How long that life may be depends on many factors such as mileage, engine hours, quality of the preventative maintenance program, technology advancements, quality of the driver training program, rule enforcement, quality of the original builder and components, availability of parts, and custom or commercial chassis, ability of the district to generate funding, general appearance, etc.
McGrath Consulting Group, Inc. Page 214
Over the years, the NFPA has attempted to define life expectancy of apparatus with little success. However, under the 2009 edition of NFPA 1901, a new Annex D, titled Guidelines for First-Line and Reserve Fire Apparatus was added which discusses apparatus built prior to 1991. Section D.1 discusses minimizing the risk of injuries to firefighters and improvements in safety features that have been instituted since 1991. The guideline further states that new safety upgrades and innovations are not generally found in units built prior to 1991; therefore, this standard recommends that apparatus built prior to 1991 be placed into reserve status. This reserve status is only recommended if compliance to NFPA 1912, Standard for Fire Apparatus Refurbishing, has been adhered to.
Another significant factor in equipment replacement worth reemphasizing, as outlined in the NFPA standard, is the rapidly changing area of technology, much of which is directly related to firefighter safety. Based on this factor, apparatus technology becomes an issue when considering replacement. NFPA recommends apparatus older than 15 years should be considered for reserve status only if these NFPA standards have been followed: required maintenance of the vehicle being adequately maintained, and the overall condition of the vehicle has been determined to be safe. Apparatus that were not manufactured to the applicable NFPA fire apparatus standard or that are over 25 years old should be replaced.
Apparatus/Vehicles Replacement Schedule Currently the CAFD has no formal replacement schedule and no funded capital apparatus replacement fund. The consultants recommend CAFD implement the apparatus replacement schedule as illustrated in the table below:
Table 45: Recommended Apparatus Replacement Schedule Type of Apparatus Recommended In-service Years Engine/Pumper 20 Years + 3 years in reserve Aerial/Tower 20 Years + 3 years in reserve Tender 20 Years + 3 years in reserve Heavy Rescue 20 Years + 3 years in reserve Ambulance 7 Years + one rechassis for + 7 years
McGrath Consulting Group, Inc. Page 215
Type of Apparatus Recommended In-service Years Brush Truck 15 Years + 3 years in reserve Auxiliary Vehicles As Needed Cars/SUV 10 Years
The advantage of creating an apparatus replacement fund is that monies are set aside each year for the life expectancy of the apparatus. The interest bearing account will help to offset the increase costs of the apparatus. An additional advantage in maintaining this type of fund, prepares the district for any type of catastrophic event where insurance may not cover an integral piece of apparatus or equipment.
CAFD Apparatus Replacement Dates The table below utilizes the consultant’s recommendations to identify CAFD current rolling stock dates for rechassis (ambulance) or replacement of apparatus:
Table 46: CAFD Apparatus Replacement Dates Station #1 Apparatus Apparatus Apparatus Type Year Rechassis Replace Engine 1 Pumper 1994 2014 Engine 2 Pumper 2001 2021 Tower 1 Tower Ladder 95' 2001 2021 Rescue 1 Heavy Rescue 2008 2028 Squad 1 Chase Vehicle 2006 2016 Medic 9 Ambulance 2010 2017 2024 Medic 10 Ambulance 2013 2020 2027 Medic 11 Ambulance 1997 overdue overdue Medic 12 Ambulance 2003 overdue 2022 Chief 2 - BC Command 2012 2022 Station #2 Apparatus Apparatus Apparatus Type Year Replace Engine 21 Pumper 2003 2023 Engine 22 Pumper 2008 2028 Tender 21 Tender 2013 2033 Brush 21 Brush Truck 2008 2023 Station #3 Apparatus Apparatus Apparatus Type Year Replace Engine 31 Pumper 2006 2026 Brush 31 Brush Truck 2012 2027
McGrath Consulting Group, Inc. Page 216
Station #3 Apparatus Apparatus Apparatus Type Year Replace Squad 31 1st Response 2004 2014 Chief 3 - Training Train/Safety 2011 2021 Administration Vehicles Apparatus Apparatus Type Year Replace Chief 1 - Fire Chief Command 2012 2022
Ambulance Rechassising The consultants recommend when an ambulance is to be replaced at the seven year mark, CAFD should have the patient compartment removed from the chassis and place it onto a new chassis; resulting in the unit being titled as new. The re-chassis patient compartment is anticipated to last another seven years for a total service life of the ambulance patient compartment of 14 years. At that point the unit would either be kept as a reserve unit or discarded. NFPA 1917, Standard for Automotive Ambulances 2013 Edition, defines in great detail the technical standards and ambulance needs; however, the standard remains mute on the issue of life expectancy. On rare occasions, the consultants have experienced agencies that attempted to utilize the patient compartment for a third re-chassis; however, the findings indicated that after 14 years the majority of the patient compartments would need extensive renovation and repairs if an attempt was made to utilize them again. The consultants support re-chassis programs and believe it to be a very cost-effective program for maximizing CAFD resources.
Recommendations-Apparatus After the consolidation CAFD has eliminated some unneeded or duplicated apparatus and equipment. With the recommendation of consolidating Stations #1 and #3 a new apparatus assessment should be conducted by the department leadership. Priority 5
Consideration should be given to placing one of the ambulances in Station #2. Priority 4
CAFD should adopt the recommended apparatus replacement schedule as presented in the report. Priority 1
CAFD should rechassis the ambulance after the seven-year life expectancy has been reached allowing for seven more years for the patient compartment usage. Priority 1
McGrath Consulting Group, Inc. Page 217
Evaluate the costs and satisfaction of utilizing the city’s maintenance facility after 12 months of usage. Priority 5
CAFD should create a capital apparatus replacement fund and amortize the finding for each year to reach the purchase price of the replacement apparatus. Priority 1
McGrath Consulting Group, Inc. Page 218
Training Training is one of the major underpinnings of any successful department. For without a well thought out and executed training program the department will undoubtedly fall short when tasked with operational incidents. Although firefighters have always found ways to adapt and overcome many operational challenges, they do so at elevated risks of injury or death to themselves and other crew members. Ultimately, the lack of sound training programs yields undesired outcomes and potentially increases the risk of grave injury or death to its firefighters.
CAFD is a combination department utilizing both career and volunteer members to meet operational objectives. There is clearly some operational efficiency in terms of flexibility and economics with this service delivery model; however, this system also provides unique challenges to the success of the training program. A combination system in-an-of-itself increases the complexity in the delivery of training programs; in this instance, the issue is further exacerbated because CAFD embodies the merger of three different departments into one entity.
Beyond those challenges presented by the service delivery model, CAFD protects a very diverse service area to include very rural areas where tender operations are required to deliver a water supply for firefighters, residential areas with large homes in terms of square footage and numerous expansive manufacturing target hazards. Because of these hazards there is a need for the department to be trained and prepared to manage a number of special operations including but not limited to, hazardous material events by both road and rail, confined space and high angle rescue, as well as water related emergencies. The department also provides emergency medical services including non-emergent inter-hospital transport.
Although one could construct an argument whereby busier departments might need less training for routine emergencies, the consultants would caution from accepting this premise. Most of the risks which have been previously described require specialized skills, unique protective clothing and equipment, and necessitate a carefully coordinated operation. These low frequency/high severity events require a great deal of focused and frequent training to assure success when an event occurs.
McGrath Consulting Group, Inc. Page 219
Unfortunately, the fire department cannot control the types of emergencies they will respond to or when those events might occur. The general public makes the logical assumption they will have at their disposal a cadre of highly trained, certified and experienced personnel responding to their emergency. From the eye of the customers they make no distinction in their expectations relating to service delivery between a career and volunteer/paid-on-call firefighter.
Therefore, it is imperative the training program address all members of the department regardless of their employment status. With that said, it is also clear the training program will have to take into consideration the amount of available time a volunteer has to attend training. The most obvious distinction would be in the areas of specialized rescue response and emergency medical certification requirements. However, it is a mistake to create grossly divergent standards for career and volunteer members on essential services expected by the community. To do so will undoubtedly expose your constituents as well as your firefighters to additional risks.
Adequate training of fire department personnel is always extremely challenging to those in command of the department. As mentioned earlier in this report, managing a training program in combination departments adds another level of difficulty. In the case of CAFD they are dealing with the merging of three departments into one entity. From a 60,000 foot view there still appears to be significant issues here which need to be addressed in a comprehensive training program.
To illustrate the challenge of merging three departments, the consultants asked both career and volunteer members the question: “How many fire departments are here in the CAFD?” The most common answer was three; essentially the Cloquet way, the City of Scanlon way and finally, the Perch Lake way. It should be noted there were also a number of responses which were as high as six or more when considering the differences between the stations and the three career shifts when the consultants were told there are the full-time and paid-on-call which are yet another organizational division. This some five years after consolidation, is illustrative that there is noteworthy work still to be done to mitigate or dispel this belief.
McGrath Consulting Group, Inc. Page 220
Fortunately, the CAFD has identified the importance of training as it relates to the ultimate success in their mission. To that end, they have appointed division chief as training and safety officer for the department. He is assisted by a part-time training and safety officer. Together they are responsible for ensuring all members are adequately trained and to assure there is consistency and coordination in the development and delivery of training to the members. The Training Division Chief is responsible for the overall development of the training program ensuring it meets or exceeds regulatory requirements for recertification, reflects current fire service standards and practices, and maintains actual proficiencies (skill sets) of the staff.
The act of making these appointments is a step in the right direction but alone it did not foster the changes needed to make CAFD “one department.” The success or failure will require a paradigm shift or cultural change which begins with the chief. One of the biggest impediments observed by the consultants is a breakdown in communication at several levels. This has manifested itself in a real disconnect between the line career members and the chief with regard to what the training division chief’s mission is with respect to training. Over time this disconnect has led to personnel taking positions on training that have ultimately developed into a lack of confidence in the training program and those managing it.
It seems clear to the consultants there is a real need to better manage expectations as the organization moves forward. This will necessitate clear communications to all members regarding the direction of the training program. The consultants also believe this disconnect in expectations is at least a proximal cause in the overall dysfunction of the training program. To recognize and then accept that there are substantial challenges within the development and administration of the training program, to include overall communication, is critical to its future success.
Ultimately, a well-constructed and implemented training program will provide you the opportunity to build and maintain the “one department” which has been illusive to this point.
McGrath Consulting Group, Inc. Page 221
Conspicuously absent with regards to training, is the area of cooperative training with any of the CAFD mutual aid departments. It was found in studying provided data that there is very little interaction with the neighboring fire departments that would be called upon in the event of a major fire or other incident. There should be a minimum of quarterly “hands-on” training exercises set up with these mutual aid partners in order to enhance and foster a more cohesive working relationship as well to familiarize the firefighters and officers with each other.
Division Chief Training & Safety The position is a full-time position and the incumbent is part of the district’s management team. When interviewing the training division chief (aka: training chief), the consultants sensed he was knowledgeable and dedicated to the district and his position. Although the consultants felt he has the knowledge necessary to be a success in this role, there were a number of structural deficiencies in the overall training program which will be delineated in the subsequent paragraphs. Some question does exist as to whether he alone will be capable in making the required turn-around of the training program. This comment is provided not only because of the sheer volume of work which needs to be accomplished to restructure the training program, but equally important if not more so, is the need to address the disconnect between this position and the officer team of the department. The vast majority of career members have lost confidence in his ability to bring the training program up to their expectations.
The division chief of training sees his overall role in a similar light to the chief in that his is a higher level role charged with the development and coordination of, but not the delivery of, the actual training curriculum. Program delivery is currently left up to the station captains and is the heart of the disconnect at the company officer level who believe the chief of training should be responsible for the delivery of the class as well. The consultants believe, for reason or reasons unknown, this lapse in communication has created expectations which are not consistent with the chief’s. It is felt by the consultants that the battalion chiefs must be an integral part of all district training to assure that incomplete, missed, or required training is performed. They should be working in conjunction with the division chief of training as well as with the station captains.
McGrath Consulting Group, Inc. Page 222
Reporting to the training chief is a part-time training and safety officer. According to the job description the incumbent is responsible for assisting the training chief with coordination of the training program and is responsible for instruction and implementation of the training program. But according to the training chief this individual has no set hours of work and seemly has no real direction. There appears to be no oversight or accountability with regards to training verification and/or documentation assuring that training is actually carried out and completed according to recognized standards.
The consultants were left with the question of where is the major source of the dysfunction with the current training program? To attempt to identify that answer the consultants interviewed as many members as possible, requested data pertaining to training, assessed the training curriculum, and attempted to validate training hours achieved by members. This process yielded a much clearer challenge associated with turning the CAFD training program around and the question must be asked, whether or not the training program as it exists today, is it in fact, able to be resuscitated, or does the entire training division require a total reorganization with a fresh start?
Training Calendar There is a continual need for training at all levels of the organization from the firefighters, firefighter/paramedics, FEO’s, captains and the chief officers. In the case of the CAFD this on- going training could be more challenging given the number of volunteers that could be utilized in their delivery system. However, the volunteers have pretty much been isolated into a very secondary, if that, role in service delivery. Even if the volunteers were utilized more, the national retention rate for volunteer firefighters is four years per person, per department (source: International Association of Fire Chief); the stress placed on the training program is even more acute.
During the meeting to discuss the training program with the division chief, the consultants were informed the training schedule he crafted has been placed in abeyance until further notice. The reasoning given was the program has been revamped at the recommendation of an earlier study.
McGrath Consulting Group, Inc. Page 223
From that study two committees were established; one to review what needed to be taught and the second to identify how the material is to be delivered.
Narrowing in on the committees, the consultants asked how long the committees had been engaged in this activity. The answer was over one year. When the division chief was asked about the progress or lack thereof, he reported his sub-committee had gone as far as they could and they were waiting on the other committee to provide their feedback before they could complete their portion of the training assignment. The division chief indicated this project has been discussed at every management staff meeting since the project began and reported the lack of time as the rationale given for the lack of progress.
Next the consultants questioned the division chief about what is currently happening with training given his earlier statement regarding the implementation of his training plan. The consultants’ understanding from earlier statements was that the current training plan is simply to ensure all mandatory training subjects needed for recertification or licensure are met. There is no real training plan! When asked to provide a copy of the training plan currently held in abeyance, the consultants were provided a hand-written, multi-year document. It was interesting to find with the extensive budget directed toward the training division, that a hand-written training schedule document was all that could be produced. There appeared to be a wide variety of technology available to the training division for their use as well. A full and complete training schedule should be developed, carried out, posted, and followed incorporating each of the required annual training topics. This printed document should be developed incorporating a minimum of a two-year plan covering the various subject matter and including make-up dates for those unable to attend.
The figure below is a sample of the material provided to the consultants. Some months had slightly more entries while many months had less entries; therefore, to the best of the consultant’s ability an average month was scanned and included:
McGrath Consulting Group, Inc. Page 224
Table 47: Sample Monthly Training Assignment Provided to the Captains
The document was very primitive, lacked specificity, had no performance benchmarks with regard to the number of hours of training, and in the opinion of the consultants, lacked the detail needed to frame a comprehensive training program.
Without a comprehensive training plan the consultants followed up on the statement made earlier that the essence of the current training is to ensure all members will have the required classes needed for recertification or licensure. During the interviews one member indicated he almost lost his paramedic licensure because the supporting training record had not been properly updated.
The division chief was asked to provide documentation to support the claim made that all members are receiving the required classes needed to meet statutory, certification or licensure requirements. The division chief was directed to select a mandatory class he was sure was already presented; he selected Blood-borne Pathogens.
McGrath Consulting Group, Inc. Page 225
Therefore, the consultants, at random, matched the training schedules to the recorded training hours listed on the members training records. The table below illustrates serious conflicts:
Table 48: Compared Training Schedule to Actual Training Training Schedule Compared to Training Records Matched 5 3 of 5 were open to officer’s choice Conflict Different Subject 5 trained but not on assigned topic Conflict Nothing Listed 18 trained but schedule was blank
Blood-borne Pathogen Training Verification The consultants requested and were provided the actual member logs of those who attended the Blood-borne Pathogens class. The purpose of the consultants’ request was two-fold; first to determine whether every member had the required training and second to identify if there was a mechanism in-place to highlight members who missed the training class.
The classes were held on February 27 and 28 of 2014, and had a total of twenty-six attendees. The documentation indicated: An inconsistency in the number of hours of instruction between the two classes: three hours in one session and two hours in the other In total 26 members of the 55 department members completed the required training.
One can only speculate the cause for these discrepancies: The class was taught by two different instructors; each provided a single page sheet which added more conflicts: o Description of the actual training was different o Code for the class was listed: “Mandatory: No” o Nothing indicated there was any type of curriculum given to the instructors to follow
The 29 employees who did not attend the training perhaps fell through the cracks and there is no system in place to identify these occurrences
Improper documentation of who attended the mandatory training.
In either case this should be very disconcerting to the leadership of the department.
McGrath Consulting Group, Inc. Page 226
Additional Training Verification With this finding, the consultants wanted to see if this was an aberration or whether there might be a pattern. The consultants looked at three other areas including Confined Space/Rope Rescue, Hazardous Material Operations and Driver training records for 2013 and 2014. It should be noted the consultants randomly selected member training jackets and used the departments RMS ImageTrend™ to ascertain participation in cases where there was no documentation in the members file. The findings are detailed below:
Table 49: Random Training Records Random Training Records Driver Training (FEO) Total Hours Employee A Employee B Employee C 2013 0 0 0 2014 4 4 4
Confined Space/Rope Rescue Total Hours Employee A Employee B Employee C Employee D 2013 0 0 0 0 2014 4 0 0 4
Hazardous Material Operations Total Hours Employee A Employee B Employee C 2013 9 8 10 2014 0 0 0
Each of these subject areas have either recommended or mandatory annual training requirements. As illustrated in 2014, these members of the CAFD are devoid of any training in these areas. What concerns the consultants is how prolific is this problem? The consultants understand an argument could be made that at the writing of this section of the report (October 2014) there are still ample time for documenting 2014 training in these areas. This is a true statement but the data presented in this section clearly identifies a disturbing pattern. Excuses for lack of training are of little condolence when they result in the death or serious injury to those providing emergency services.
McGrath Consulting Group, Inc. Page 227
CAFD Training Records The consultants request from the training division data (see Appendix A) which yielded a 190 page document spanning from 2009 through 2014. The document provided basically unusable information due to the number of duplication of entries, hours recorded for same topic on the same date , training hours being recorded for daily apparatus checks, attending meetings, station maintenance, hose testing, and as many as 16 hours of driver training in a single session date.
The data is problematic and aligns with the dissatisfaction expressed repeatedly during the interviews with members. The training division obviously has no quality control/assurance program, and the consultants question if this data is utilized in developing a training curriculum or used in any manner in the management of the department. Often when our team is presented with this type of material which does not match the request and is so problematic it raises concern for the entire training program.
The table below indicates the total training hours, percent of ISO required training hours (ISO = 240 hours), EMS hours, total hours, invalid entries, and duplication of entries for six of the career members chosen at random:
Table 50: Random Sample of Fire & EMS Hours - 2013 2013 Training Hours % % in 1 Employee Fire EMS Total Invalid Duplicate ISO Year A 66.75 28% 33 138% 99.75 0 0 B 63.5 26% 37 154% 100.5 0 0 C 82 34% 32 133% 114 0 0 D 76.5 32% 34.5 144% 111 0 1 E 44 18% 17 71% 61 0 0 F 72 30% 13.5 56% 85.5 0 1
Fire Training Hours The figure below is a representation of total training hours for both fire and EMS in 2013. The consultants chose six career member records at random and manually divided them into fire
McGrath Consulting Group, Inc. Page 228
training, EMS training, invalid entries, and duplication of hours rewarded for same topic same date. The consultant also assessed several of the paid-on-call members annual training hours; however the figure below only represents the six career annual training hours:
Figure 31: Fire Training Hours – Six @ Random Members - 2013 2013 Training Hours - Fire
250 ISO Requires 240 hrs.
200
150
100
50
0 A B C D E F Hours 66.75 63.5 82 76.5 44 72 % of Required 28% 26% 34% 32% 18% 30%
ISO requires 20 hours of fire training per month or 240 hours per year. To accomplish this, a career firefighter would need to spend two hours of training per shift. If this was accomplished the individual would actually exceed the 240 hour requirement of ISO. The highest member of the six received 34% of the required ISO mandated fire training hours. The average of the six employees was 28% of the hours mandated by ISO. This represents as significant deficiency in training.
EMS Training Hours The State of Minnesota Health Licensing Board sets the requirements for certification and re- certification hours, topic, and clinic time to re-certify as an EMT or EMT-P. An EMT license is good for two years and the following hours and/or requirements are illustrated in the table below for recertification:
McGrath Consulting Group, Inc. Page 229
Table 51: EMT Re-Certification Requirements Re-certification Requirements EMT 48 Hours/2 Years or New NREMT Certificate EMT -P 48 Hours/2 Years or New NREMT Certificate
The consultants only hand counted EMS hours for 2013; therefore, it is unknown how many of the six random employees would achieve these hours in two years to meet the EMS requirements. However, if they were to match (no less or more) then the 2013 hours for EMS the following figure would apply:
Figure 32: EMS Requirement @ One Year 2013 Training Hours - EMS
40 35 30 24 Hrs./Year Required 25 20 15 10 5 0 A B C D E F Hours 33 37 32 34.5 17 13.5 % of Required 138% 154% 133% 144% 71% 56%
Note: One firefighter paramedic recorded 16 hours of EMS training in a single day Additional: The figure above only represents one year of the two years in which the individual has to accumulate the 48 hours. Therefore, it is premature to draw conclusions as to the efficiency of EMS training. Once again these are numbers the training officer should track and ensure all personnel are meeting.
It would appear that EMS required training hours are being met through the curriculum of the project medical director. The individual who holds the liability for the EMTs and paramedics is the project medical director and has significant latitude in ensuring the service providers are qualified. The Minnesota Emergency Medical Services Regulatory Board (EMSRB) does not
McGrath Consulting Group, Inc. Page 230
require a certain number of hours per year; rather just that 48 hours are accumulated within two years.
Cloquet Training Record Concern With a dedicated training division in place it is perplexing how such a deficiency in training could occur and not be addressed. The department has significant opportunities to make major changes in their training program; these changes are essential and have a direct impact on the safety of those providing the services; immediate attention to these training issues is recommended.
It is as equally important to select qualified instructors to teach the various classes as it is to follow the recognized criteria. The utilization of certified instructors to assist in developing training objectives and be a part of building the training program is a “healthy” and positive idea. The use of certified instructors, department officers bringing special areas of expertise, as well as technical experts should all be considered when selecting and/or assigning instructors for each particular topic. The training division chief needs to be held accountable for all aspects of instruction including the selection and assigning of instructors.
Standard Lesson Plans The consultants were informed that the department does not maintain an entire library of standard lesson plans. Although the consultants were presented with an example of a detailed Instructor Guide on Forcible Entry, the consultants were not convinced it is reflective of a complete body of work detailing all subjects taught by the CAFD. Apparently, the lesson plans are created once the subject area to be addressed is identified by the division chief; therefore, the more routine class lesson plans are created on an as needed basis. On the officer’s option days there may be no lesson plan even employed.
Without standard lesson plans the CAFD will lack the consistency they are looking to achieve. This inconsistency helps to foster the notion there are multiple departments functioning within
McGrath Consulting Group, Inc. Page 231
the district. The lack of a standardized approach in applying a standard lesson plan to each subject taught creates controversy at the most inopportune times (emergency scenes).
The consultants will recommend that new standard lesson plans be developed for all routine and reoccurring training. These outlines should be available to company officers and/or instructors on an as-needed basis and preferably accessible online. It should be noted the lesson plan provided for our review contains most of the points recommended below. If this becomes a standard practice it will go a long way to achieve consistency in your training program.
Each training session should require the following: Class/lesson title Learning objectives References Lesson plan Listing of materials needed Time required Lesson preparation Lesson outline Practice Summary Method to ensure competency Documentation Instructor certification Participant sign-in (not a check sheet)
Training Disciplines and Delivery Basic Training: New candidate (volunteers) training is conducted in-house and encompasses eighty hours of both classroom and practical training. When the training is complete and following successful completion of the state exam the candidate will be a Certified Firefighter I (includes Hazardous Material Operations). These classes, as well as other EMS related classes, are open to area fire departments. The actual length of the class is determined by the availability of those attending. According to Division Chief of Training this approach has worked well for the CAFD and brought in approximately $20,000 in revenue last year.
McGrath Consulting Group, Inc. Page 232
After completion of the class, members of the CAFD receive a Probationary Firefighter Task Book. This book outlines a series of skills which must be signed off on by a company officer to validate the candidates’ understanding of, or completion of a particular skill set. It should be noted the Task Book for Volunteers is currently under review and the consultants would recommend the Task Books for both career and volunteer should be in-line with the other.
Based upon information gleaned from interviews, career firefighters must already be a Firefighter I and paramedic at the time of employment. They are also provided a Task Book to be completed before they can serve as an active member (firefighting) and are assigned a mentor. The sign-off procedure is the same as previously reported and the recommendation that the Task Books cover the same material is reaffirmed here.
During discussions on who can sign off on the various skills in the Task Book, it seemed to the consultants in the end that anyone could sign-off on the various modules. The consultants recommend if this is the case, the policy be amended to allow only certified instructors to validate compliance. A recommended improvement in this area would be to consider utilizing NFPA 1001-Standard for Firefighter Professional Qualifications 2013 Edition. Within this standard is the defined program whereas Job Performance Requirements (JPR) are conducted ensuring competencies for the various skills.
Driver Training: The driving of emergency vehicles, especially under emergency conditions is a uniquely hazardous operation and part of your daily activity. The size of the vehicle, time of day, road conditions, and specialized braking systems all contribute to the inherent dangers associated with emergency driving. CAFD has taken steps to help mitigate this exposure by delineating who can drive an emergency vehicle.
During the interviews, the consultants were told the driver/operators of the emergency vehicle are titled fire equipment operators (FEO’s). Of course there are those who can drive who are not the normal FEO. Everyone must have a Class B driver license, complete the annual Emergency
McGrath Consulting Group, Inc. Page 233
Vehicle Operator Course, and be checked out and certified on each vehicle before they can drive. What concerns the consultants is we found no documentation outlining these requirements and the training records do not fully support this assertion.
Supervisor Training: In addition to the basic regimen of fire and EMS training, supervisory training should be required for all officer positions within the department. Those individuals charged with supervising others need a working knowledge of basic supervisory principals. This would include those who would be expected to work-up in a supervisory assignment. According to the division chief there is no supervisory curriculum or training afforded by the CAFD and any training in this area would be done through classes outside of the agency. There should be a minimum of two hours per month dedicated to supervisor officer training.
There is also no program in place to prepare the firefighter transitioning to the rank of captain. To assume that their experience as a firefighter or acting officer has adequately prepared them for their new role is extremely short sighted. The incumbent in many cases will take on the role using techniques learned over time by previous supervisors whether those techniques were worth emulating or not. Skill can be learned; however, new officers need training to help them deal with the non-emergent situations they will face the preponderance of their day. With this in mind, it is felt that a formalized training program be instituted to prepare newly appointed officers as well as those filling these positions in an “acting” role. It is important to prepare those moving into supervisory roles with adequate skills, training, and information.
This lack of training is a concern for the consultants as it exposes the district to some liability through the actions of untrained supervisors. Detailed below are some suggested classes for all officers even though some of these recommendations would benefit all members of the district. See also the Human Resources Section – Promotions for further discussion on supervisory training.
McGrath Consulting Group, Inc. Page 234
Table 52: Supervisor Training Topics Supervisor Training Topics Coaching Harassment/ Workplace Violence Conducting Performance Evaluations Interviewing / Employment Law Counseling Managing Change Dealing with Difficult People Performance Management Delegation Principles of Supervision Diversity Problem Solving Techniques Employee Documentation Time Management Ethics Team Building Family Medical Leave Act Writing Reports Note: See Human Resources-Promotions for more discussion on supervisory training.
Specialty Training: Because of the hazards located in the district, Cloquet provides a series of specialized services beyond fire suppression and emergency medical responses normally associated with a fire department. These include the following: The ability to rescue victims from a confined space such as an aboveground storage tank or such spaces below grade, all with limited access; The ability to rescue people by rope either from low angles or extremely high angles; The ability to rescue people involved in water-related incidents including boating accidents; The ability to respond to and mitigate an incident involving hazardous materials (including railroad events).
These are all considered Low Frequency/High Severity events and as a result require a great deal of specialized initial training as well as concentrated on-going annual training. Given what was discovered on a random review of member training jackets, a thorough review of all members on these specialty teams should be undertaken immediately and those found with incomplete or insufficient training should be removed from the team until the requisite training is completed.
Beyond the actual training program, today’s fire service requires more than simply teaching members how to perform their jobs safely; it requires validation of their competency to do so. A well-constructed training program will employ a system to ensure all members receive required
McGrath Consulting Group, Inc. Page 235
training and document core competencies (practical training evolutions) and it appears the current Records Management System (RMS) does not have those capabilities.
The methodology or system used to document training events seemed flawed and certainly is prone to breakdowns. Currently, when a training class is given the training sign-in sheet is completed and then put in a box for the training officer. The form, once picked up, is then taken to the headquarters building, placed into a binder, and entered into the RMS system. Most recently the division chief was on medical leave and it was uncertain whether all the training sheets even made it to his office. The consultants recommend that the training should be entered immediately after the training is completed and will recommend the company officers are charged with this responsibility.
The Liability of Poor Training With an increasingly litigious society, the liabilities associated with poor training and/or poor documentation of that training, are enormous. Within the last decade there has been an increased tendency for municipalities/districts to be stripped of their immunity protection when dealing with an employee’s injury or death. It is hoped that the CAFD never experiences a firefighter’s line-of-duty death. However, in the event of such an occurrence or a serious line-of-duty injury, a large number of state and federal agencies would conduct independent investigations. At minimum, the fire department would need to provide the investigators with the following: Documentation that the individual received training in the evolution(s) in which the death/injury occurred.
Comprehensive curriculum of the training topic.
Attendance sheet with the individual’s signature indicating he/she attended – not a list of member’s names with a check-off box.
Record of the instructor’s qualifications to teach the topic.
Competency documentation showing how the department measured the ability of the individual to safely perform the task in which he or she was injured.
Historical record showing how frequently this topic was instructed and what other topics supported a safe environment under the conditions found at the accident scene. McGrath Consulting Group, Inc. Page 236
In the event of a serious accident or line-of-duty death, lack of such documentation could result in fines from both state and/or federal agencies, as well as leave the fire department and perhaps even the district board open to serious civil litigation.
In addition, the following should be recorded into the record management system: date of the training, time and duration of the training, class objectives, audio/training aids utilized, training participant’s feedback, notes or comments by the instructor on how the training could be improved.
Competencies vs. Training Hours Beyond the actual training program, today’s fire service requires more than simply teaching members how to perform their jobs safely; it requires validation of their competency to do so. A well-constructed training program will employ a system to ensure all members receive required training and document core competencies (practical training evolutions) and it appears the current CAFD Records Management System (RMS) has those capabilities, but apparently are not utilized.
The topic of measuring competencies of department personnel continues to raise strong feelings from both those who manage the department and those department members who provide the actual service. Yet everyone seems to agree that a most importance issue is safety of the emergency responders. Therefore, is it adequate for a chief to base the abilities of the emergency responder personnel on their certifications and monthly training records or attendance at drills, versus their actual ability to not only to perform the task, but also to do so in a safe manner?
Emergency events do not discriminate between volunteer, paid-on-call or career employee status; yet the amount of time available to dedicate to training can be influenced by that status. It is hard to actually determine the quality of training by examining monthly training records. Yet
McGrath Consulting Group, Inc. Page 237
one cannot argue that how you train is how you will perform on the emergency scene. Training and safety are hard to separate when looking at performance.
Competency is the “quality of being adequately or well qualified physically and intellectually to perform the responsibilities of the position”. Thus, the department must define the activities that are deemed necessary to determine if an employee is ‘qualified’ to perform the essential functions of the position. Thus, competency testing should be based on the individual’s job description, which should include the job responsibilities as well as the mental and physical requirements of the job not on how many hours spent on a training topic. Different levels of competency need to be developed based upon the roles and responsibilities of the rank; therefore, the competencies required of a firefighter are different than the competencies required of a captain or battalion chief.
When competencies are defined, measuring competencies is not only prudent; it actually can significantly improve a training program. One way to ensure established competencies are understood and individuals within that rank can perform the job functions is to utilize technology in measuring competencies. The use of technology will provide some substantial improvements in most training curriculums, while providing critically important documentation. Unfortunately, in many departments (perhaps CAFD) the firefighters are willfully short on training hours, documentation is grossly inadequate, and documentation that the individual can actually perform the function in a safe manner is nonexistent.
Discussion of competency testing often results in many jumping to the conclusion that if an individual lacks the skill associated with a particular task and cannot perform in a safe manner, there should be some type of punitive action. Quite the opposite should occur. Rather, remedial training should be given and documented, until such time the individual can perform the task safely and proficiently. Punitive action should occur if the individual refuses to correct the unsafe behavior.
McGrath Consulting Group, Inc. Page 238
National news recently covered a story that teachers’ tenure should no longer exempt them from demonstrating competency in the topic they teach – not surprising there was great resistance to this concept and competency testing in CAFD will most likely be met with the same level of enthusiasm. But because it might be unpopular does not exempt district from the responsibility of doing everything in your ability to ensure personnel are safe. It is strongly felt by the consultants that a minimum of semi-annual competency testing for all active line personnel be conducted by the senior management team in conjunction with the training division. The ultimate goal of such testing would be to identify deficiencies and develop remedial strategies for correction. In coordination with this testing would be a “Fit for Duty” medical testing program to also identify deficiencies and also develop remediation actions.
Training Certificates Consultants were provided with a listing of training certifications for the department members as illustrated in the table below. Of particular interest to this study are the number and therefore availability of certified instructors which can be utilized to deliver the training curriculum once it’s developed.
Table 53: CAFD Certificates CAFD Certifications FF 1 FF 2 Inst 1 FAO FO 1 FO 2 CSR/HA L.B inst Chief Officers Chief Schroeder X X X X X X X D/C Klatt X X X X X X X B/C Meagher X X X X B/C Kolodge X X X B/C Buhs X X X X X Career (A Shift) FF 1 FF 2 Inst 1 FAO FO 1 FO 2 CSR/HA L. B. Inst Captain Vermeersch X X X X X X X FEO Waters X X X X FF Garberg X X X X FF Rautell X X X X FF Cyson X X X X X FF Hjelle X In class
McGrath Consulting Group, Inc. Page 239
Career (B Shift) FF 1 FF 2 Inst 1 FAO FO 1 FO 2 CSR/HA L.B. inst Captain Hills X X FEO Hecht X X X X FF Saddler X X X FF DeBondt X X X X FF Erickson X X X FF M. Nelson X X Career (C Shift) FF 1 FF 2 Inst 1 FAO FO 1 FO 2 CSR/HA L. B. inst Captain Hutchison X X X X X X X FEO Marciniak X X X X FF Maki X X X X FF Bjorklund X X X X FF Jahr X X FF White X X
Volunteer (Station #2) FF 1 FF 2 Inst 1 FAO FO 1 FO 2 CSR/HA L. B. inst Captian Anderson X X Captain Ninneman X X Captain Hecht X X FEO Olson X X X FF D. Hills X FF M. Hill X X FF C. Klatt X X FF J. Nelson X X FF T. Nelson X X FF Stoddard X EMR Tezak EMR Kunstleben EMR Clark Volunteer (Station #3) FF 1 FF 2 Inst 1 FAO FO 1 FO 2 CSR/HA L. B. inst Capt. Admin. Guentzel X X Captian S. Buhs X X Captain Trone X X X Captain Gustafson X FF Pederson X FF Sanda X X X X X FF Bergeron X X FF E. Johnson X X
McGrath Consulting Group, Inc. Page 240
Volunteer (Station #3) FF 1 FF 2 Inst 1 FAO FO 1 FO 2 CSR/HA L. B. inst FF LeBlanc X X X FF D. Nelson X X FF J. Johnson X X FF. Unterberger X X FF Juntunen X X FF. DeWitt IN CLASS IN CLASS FF Biondich X X FF Fall X X
Insurance Services Office (ISO) In 2007, ISO performed an analysis of the firefighting capabilities of CAFD. One of the elements germane to this section was their review of the department’s training program. Reviewing Item 580 of the report the maximum credit for training is 9 points. In the final rating Cloquet received a total of 5.38 points or 60% of the total points available.
Following a conversation with the fire chief, it is the understanding of the consultants this rating is much improved from the previous survey conducted by ISO. Looking at the detail, the department lost credit on the training facilities, aids, and the use made of them by the fire suppression force. In the opinion of the consultants the latter part of that comment is the most telling. Although the CAFD is missing some of the facilities and aids required by ISO, the consultants felt the mobile training facilities afforded to the department are ample for high caliber training exercises. Unfortunately, from our interviews the use of those facilities is very sporadic over the course of a year.
What is in conflict with the ISO review is the consultants were told repeatedly that there is no officer training; yet ISO awarded full credit for Classes for Officers. The chief indicated that ISO did give officers training credit taken at remote schools; however, CAFD has no formal officer training program. ISO gave no credit for Driver and Operator Training yet the department indicates the opposite. Both ISO and the department agreed on Training on Hazardous Materials at full credit. The opportunity to validate such training is easily accomplished through proper documentation and record keeping.
McGrath Consulting Group, Inc. Page 241
Another serious deficiency noted was the absence of a dedicated fire pre-planning inspection program. The recommendation from ISO is each of the commercial, industrial or institutional properties are inspected twice each year. The consultants feel this may be a noble goal; however, a more prudent goal would be once a year. In the recent past nationally, there have been a series of firefighter fatalities with the lack of fire pre-planning as a contributing factor. CAFD has a number of significant target hazards and there is an immediate need to facilitate thorough updated fire pre-plans for each of them. Records of those inspections must include complete and up-to-date notes and sketches.
Although there is a need to improve the amount of training within the department, it should not just be for the sake of improving the ISO rating, but rather for greater importance of ensuring personnel are adequately prepared to meet the needs of the community. The ISO model requirement for training hours however, is an attainable goal that should be explored for integrating into the daily-weekly-monthly training schedule for the entire CAFD personnel. This would effect a positive change in readiness as well as work toward compliance with state and federal regulatory requirements and industry standards.
Everyone Goes Home® Everyone Goes Home® is a program created by the National Fallen Firefighters Foundation intended to prevent firefighter line-of-duty deaths and injuries. Within the Everyone Goes Home® Program are 16 Firefighter Life Safety Initiatives or concepts that serve as a roadmap to preventing deaths and injuries. It is recommended that these initiatives be evaluated and explored for implementation within the CAFD.
Everyone Goes Home 16 Life Safety Initiatives: 1. Define and advocate the need for a cultural change within the fire service relating to safety; incorporating leadership, management, supervision, accountability and personal responsibility.
2. Enhance the personal and organizational accountability for health and safety throughout the fire service.
McGrath Consulting Group, Inc. Page 242
3. Focus greater attention on the integration of risk management with incident management at all levels, including strategic, tactical, and planning responsibilities.
4. All firefighters must be empowered to stop unsafe practices.
5. Develop and implement national standards for training, qualifications, and certification (including regular recertification) that are equally applicable to all firefighters based on the duties they are expected to perform.
6. Develop and implement national medical and physical fitness standards that are equally applicable to all firefighters, based on the duties they are expected to perform.
7. Create a national research agenda and data collection system that relates to the initiatives.
8. Utilize available technology wherever it can produce higher levels of health and safety.
9. Thoroughly investigate all firefighter fatalities, injuries, and near misses.
10. Grant programs should support the implementation of safe practices and/or mandate safe practices as an eligibility requirement.
11. National standards for emergency response policies and procedures should be developed and championed.
12. National protocols for response to violent incidents should be developed and championed.
13. Firefighters and their families must have access to counseling and psychological support.
14. Public education must receive more resources and be championed as a critical fire and life safety program.
15. Advocacy must be strengthened for the enforcement of codes and the installation of home fire sprinklers.
16. Safety must be a primary consideration in the design of apparatus and equipment.
Recommendations: Training The consultants question if the current training program can be resuscitated; rather, the training program should start afresh with the development of a training taskforce. Priority 1
McGrath Consulting Group, Inc. Page 243
The fire chief must clearly articulate his expectations of the training program and ensure all members are held accountable to follow the training schedule, ensure participation by members, and record training accurately. Priority 1
The integration of career and volunteer joint training sessions should be mandated immediately, which includes both fire and EMS topics; career members working the evenings of volunteer training should be required to participate in that training. Priority 1
The chief should assess the staffing of the training division ensure that the battalion chiefs are assigned to the taskforce. Priority 1
The training taskforce should identify expectations, set goals and timelines to develop a realistic training curriculum that ensures required training, competency, data entry, and quality control is completed. Priority 1
All career shift personnel should be required to obtain the ISO 240 hours of fire training plus the mandatory EMS training. Priority 1
Training division should identify the classes/topics needed annually to comply with state, federal, or other regulatory agency rules. Priority 1
A standardized training schedule should be developed indicating all training activities/sessions for a minimum of six months in advance; thereby, developing a holistic view identifying when mandatory subject training dates are published. Priority 2
All fire department officers should be required to teach a subject in which they have areas of expertise. Ranks below officers should be included if they have special knowledge of pertinent subjects. Priority 2
All instructors should enter training details into the record management system including: training topic, date, time, location of training, class objective, class attendance (attendees must sign), audio/training aids utilized, means utilized to ensure competencies, training participant’s feedback, and notes/comments on how the instruction could be improved. Priority 1
An assessment of the current record management system should be undertaken to determine that it meets the needs of the district. Whatever date record management system is chosen the department leadership must ensure all members receive training from the software provider. Priority 1
A policy should be developed, that requires the battalion chiefs to ensure that members missing training are identified and provided a means to obtain the necessary training. Those missing mandatory topic should receive notification from the training division immediately. Priority 1 McGrath Consulting Group, Inc. Page 244
The pre-plan program (addressed in Fire Prevention section) should be integrated into the department’s training curriculum. Priority 2
The department leadership should replace the “Task Book” with Job Performance Requirements (JPR) as defined in NFPA 1001 Standard for Firefighter Professional Qualifications – 2013 Edition 3.3.6: Job Performance Requirement – A written statement that describes a specific job task, lists the items necessary to complete the task, and defines measurable or observable outcomes and evaluations areas for the specific task. Priority 2
Both volunteer and career members must complete all items described in the new JPR before they are fully released for fire suppression assignments. The JPR is a better means to measure and document competency. Priority 2
Semi-annually the fire chief, training officer, and safety officer should mandate, and observe, competency/proficiency testing of all personnel. The goal is to identify deficiencies and develop remedial strategies to immediately address them. Priority 2
Develop a “Fit for Duty” medical testing in conjunction with the semi-annual competency/proficiency testing. Priority 2
All members training files (jackets) need to be completely revamped placing training certificates separate from training records. All material should be in chronological order with a summary sheet as the first document (reference NFPA 1401 for an example). Any material that would be restricted by HIPPA should not be accessible to anyone other than the fire chief. Priority 3
All new candidates for command or supervisory position should have formal training in those areas prior to their assignment to the position. The training should be commensurate with the complexity and nature of the position. This training should be made available to individuals who might “act” in a command or supervisory position. Priority 3
A minimum of two hours per month of officer training in addition to all other training requirements should be mandated. Priority 2
On a monthly basis the training officer should review all training records to determine whether training benchmarks are being achieved, records are accurate, ensure members participation, deficiencies should be immediately address and remedial or disciplinary action taken as appropriate. Priority 1
The training officer should be evaluated and held accountable for the department’s overall training program by the fire chief on a quarterly assessment. Priority 2
McGrath Consulting Group, Inc. Page 245
Whenever possible the department’s certified instructors should be more involved in the overall development of the training curriculum, act as instructors, and perform competency testing. Priority 2
Company “hands-on” fire training should be conducted quarterly with mutual-aid department to assure a cohesive working relationship. Priority 2
That the department adopt all 16 Life Safety Initiatives as described in the “Everyone Goes Home® , specifically Initiative #5, develop, and implement national standards for training, qualifications, and certification (including recertification) that are equally applicable to all firefighters based on the duties they are expected to perform. Priority 3
McGrath Consulting Group, Inc. Page 246
Fire Prevention/Safety Education The CAFD currently does not provide any fire prevention inspection services. The City of Cloquet Building Department handles plan review, building permits, and all building inspection but limits fire inspections to occupancies that require fire inspections as part of their licensing requirements. City of Scanlon has not adopted any codes; therefore, there are no fire inspections in Scanlon. The Fond du Lac Indian reservation is currently self-governing concerning fire prevention.
Fire Inspections The CAFD board has not mandated the fire department to conduct fire inspections under Minnesota statue chapter 299F.001 State Fire Code – Administration and Enforcement. The City of Cloquet is in favor of the fire department conducting fire inspections – a typical function of most fire departments. Although the fire chief understands the importance of fire inspections the CAFD board has not given authority to proceed.
Although the consultants highly recommend the implementation of a fire inspection program if for no other reason than the safety of the department members, it will take additional resources and the need for a designated fire marshal. Additionally, training of on-duty shift personnel in conducting routine inspections, data management, record management, and the re-inspection process would be necessary. Board action and full support for enforcement of the adopted code by the CAFD would be required to carry out this program and make it successful.
The issue of fire inspections with a sovereign nation is completely dictated by the tribal government and the CAFD would have no authority to conduct inspections without being requested or developing a relationship with the tribe for that purpose.
Fire Pre-plans The process of gathering and recording information that could be critical for safety personnel making life-saving decisions at an incident is referred to as fire pre-plans or pre-incident
McGrath Consulting Group, Inc. Page 247
planning. Property and lives can be saved when the incident commander has access to critical information about the building and its contents. Pre-planning is a safety issue for service providers and the CAFD takes this activity seriously.
The fire pre-plan program should include the gathering of the following information pertaining to each occupancy: Location-address Owner and key holder contact information Occupancy information Access points keyed and forcible entry Special hazards Type of construction Available water supply Building protection systems and their location Utilities, including the location of shut-offs Exposures Special resource considerations Technical rescue exposures Hazardous materials presence Particular life hazard issue The presence of lightweight trusses in construction
Twice a year the battalion chiefs will update the list of commercial and multi-family residents that are eligible for pre-planning. Throughout the year, with the exception of winter, the on-duty personnel will tour the building, update the pre-plan information, enter the material into the computer, and have the ability to print a hard copy. The department does not have the technology to transmit this information through mobile data terminals to the responding units or incident command, which is highly recommended by the consultants.
McGrath Consulting Group, Inc. Page 248
It is unknown if the fire pre-plans are implemented into the training curriculum and a certain number of training sessions are dedicated to department personnel discussing the pre-plans and developing fire suppression and/or rescue scenarios.
Fire Investigations
The CAFD has the only fire investigation K-9 in the state. The dog (Wish) a Golden Labrador Retriever is assigned to one of the career personnel who is reimbursed for the care and feeding of the dog under the FLSA requirements. The dog and handler were certified through grant money from State Farm Insurance to sniff out accelerants.
Fire investigations in the CAFD are conducted by a six person team trained by the State of Minnesota Bureau of Criminal Apprehension. The fire investigators are not licensed to carry firearms and base their investigations on cause and origin predominately. Incidents that would require criminal investigations or arrests are handled by the police department having jurisdiction.
Cloquet Public Education In an effort to increase public safety education, a part-time civilian public education coordinator position was created. Since the inception of this program significant increase in safety education activities have occurred which includes but is not limited to: Smoke detector battery give-away co-sponsored by an insurance company, local business (provided batteries), and supported by a local radio station.
Fire stations open houses staggered dates throughout the year for each station to maximize attendance.
Fire extinguisher training to community residents and businesses at no cost
Demonstration in rope rescue, vehicle extrication, and fire rescue procedures.
Information on child car seat installations.
McGrath Consulting Group, Inc. Page 249
Fire safety tips.
CPR/AED training fee to cover costs
Recently, a program called “Remember When” has been implemented for senior citizens which is a fire and fall prevention presentation accomplished by a voluntary home safety visit.
Fire prevention week includes activities in the schools and a poster contest with the winners having a pizza dinner with the firefighters at a local restaurant. The fire department has partnered with “Safe Kids” which provides a variety of safety programs for kids and young adults. The Safe Kids – Buckle Up program has four main components: Child passenger safety – car seat installations Heatstroke awareness and prevention – leaving children in cars during hot temperatures Frontovers and backovers prevention – driveway accidents Getting ready to drive - passenger safety for young teens before they drive Driving 4 Safe Communities is a Lake Superior regional coalition of education, emergency medicine, engineering, and enforcement professionals whose mission is reach “zero vehicle deaths” in Carlton and southern St. Louis Counties.
Risk Watch Program CAFD should investigate the all-purpose safety education program called “Risk Watch” developed by the NFPA in conjunction with Lowe’s safety council. This program allows the department to partner with city and county police departments, city EMS department, and other safety organizations.
The “Risk Watch” program was specifically developed for injury prevention. The program targets children ages 14 and under and is presented in the schools with the classroom teacher and assisted by a firefighter, EMS member, and/police officer, or in many cases all three simultaneously.
The curriculum in the Risk Watch Program consists of the following:
McGrath Consulting Group, Inc. Page 250
Poison Prevention Choking/Suffocation/Strangulation Prevention Fire Prevention/Burn Prevention Motor Vehicle Safety Falls Prevention Firearms Injury Prevention Bike and Pedestrian Safety Water Safety
The consultants recommend the department continues its public safety education efforts and acknowledges the effort of the members who dedicate their time and knowledge.
It must be stressed that whenever anyone from the fire department is in the public eye, they are representing the fire department; providing public safety education can be more than education, it is an opportunity to market the department and recruit new members.
Recommendations – Fire Prevention/Safety Education CAFD should become involved in fire inspections for the entire fire district including the tribal community as permitted. Priority 3
The implementation of a fire inspection program will require the position of fire marshal to be created. Priority 5
Fire inspections and fire pre-planning could be accomplished simultaneously by on-duty personnel. Priority 5
All pre-planning documents should be available to the emergency apparatus using mobile data terminals or other technology. Priority 2
Pre-planning should become part of the training curriculum and mandated for all emergency responders. Priority 2
The CAFD fire investigation team and use of a K-9 should be commended. Priority 5
McGrath Consulting Group, Inc. Page 251
The CAFD commitment to public safety education and use of a public education coordinator is an excellent program and should continue to be given the needed resources. Priority 5
The “Risk Watch” safety program should be investigated and if appropriate implemented into the safety education curriculum of the CAFD. Priority 2
Safety education should include programs to reduce the number of false alarms. Priority 1
McGrath Consulting Group, Inc. Page 252
Fiscal The Cloquet Area Fire District, since inception in the depth of the recession in 2009, is a very financially stable fire department. With a solid mix of stable property taxes, along with growing revenue from ambulance service, the district is on solid financial footing. Most impressive has been the year-on-year continued growth in the district’s net assets, which will provide long term financial stability for the district. A review of the financial policies provided by the district reflects modern practices and expectations. One of the most impressive parts of the district’s financial picture has been the ability of the department to successfully compete for grant funds, raising over $1.5 million dollars since 2009. As reflected in the analysis, the district has done all the right things you would expect from a “start-up” which is secure stable revenue sources, build a cash portfolio of net assets that bring financial stability to the organization; and put in place financial policies, procedures, and now practices that ensure long term fiscal sustainability.
Revenues The district relies heavily on two sources of revenue: property taxes and ambulance fees. These two sources make up 89% of all revenues received by the department. The balance of revenues, which make up 11% of the total, are stable and relatively minor.
Property Taxes Property taxes are the primary funding source for the district. As reflected in the chart below, property taxes remain a very stable source of revenue for the Property Tax Collections department. Currently, property 1,900,000 taxes make up 52% of the total 1,800,000 revenues received. Furthermore, 1,700,000 legislation passed in 2013 that 1,600,000 expanded the levy to the 1,500,000 1,400,000 ambulance service area. While 2010 2011 2012 2013 this will provide the same
McGrath Consulting Group, Inc. Page 253
amount of property tax revenue in 2014, it did more equitably change the distribution of the property tax burden for services. In 2014, $153,000 will be generated from the ambulance service area, and $1,671,950 will be generated from the district members.
Ambulance Fees Ambulance Fees The other primary revenue source for the fire district 1,400,000 is ambulance fees. This 1,200,000 revenue source makes up 1,000,000 approximately 37% of the total annual operating 800,000 revenues for the district. 600,000 The 4-year actual revenues 400,000 reflect a positive upward 200,000 trend. Ambulance fee revenue was $1,007,500 in 0 2010 2011 2012 2013 2011, grew by nearly $100,000 in 2012 to $1,106,250. The trend improved in 2013 when $1,279,456 in ambulance fee revenue was received. Ambulance fee revenue is a regular revenue generator based on overall calls billed. The primary sensitivity in ambulance revenue is the potential in changes of the Medicare reimbursement rate, which private insurers also utilize as a baseline in calculating reimbursement rate. With the focus on increasing cost containment of Medicare at the Federal level, this source of revenue, while stable, is subject to potential volatility.
Intergovernmental Revenues Intergovernmental revenues make up the remainder of the primary revenue sources, which have averaged less than 8% annually from 2011 to 2013. Given the fiscal woes at the state and federal level over the past seven years, the district is insulated from any potential defunding of these
McGrath Consulting Group, Inc. Page 254
revenues from these sources. Given that is the case, philosophically the district might want to consider that this revenue source funds capital replacements or other one-time costs. Annual operating revenues and operating costs then are based on property tax revenues and ambulance fees plus other miscellaneous revenues. This philosophy would reduce the long-term reliance on state aids and would cause ambulance rates to rise regularly in order cover annual increases in expenses.
Expenditures The primary annual expense for the fire district is personal services (76%), followed by other services and charges (16%), the annual depreciation write down of assets is (5%) and the remaining 3% is purchase of supplies.
Personal Services Personal Services As noted personal services make the primary cost of 2,500,000 the district. It is very 2,400,000 common for fire service 2,300,000 providers to be at this level 2,200,000 of expense for personal 2,100,000 services. Most of the 2,000,000 2011 2012 2013 expenses are allocated to Station #1. Total personal service costs were $2,154,473 in 2011; $2,196,624 in 2012; and $2,423,431 in 2013. The increase from 2011 to 2012 was 2%; however the increase in 2013 over 2012 was 10%. Obviously tracking the growth in salaries and benefits along with managing the number of personnel employed by the district will have the largest long-term impact on costs.
Overtime There are three different rates for career off-duty overtime as illustrated below:
McGrath Consulting Group, Inc. Page 255
Table 54: CAFD Overtime Categories Overtime Category Rate Min. Hrs. Scheduled Replacement 1.5 2.7* Emergency Overtime 1.987 2.2 Vacation/Holiday Call In 2.65 2.0 * Minimum 2.7 hours applies only to off-duty callback to cover vacancies created by sick leave.
Therefore, career overtime is the sum of all three types of overtime earned. The rates, minimal hours awarded, and description of the overtime are defined in the 2014 – 2015 IAFF Labor Contract.
The approved overtime for these three categories and acting officer pay in 2013 was $162,000. However, the previous year’s actual overtime was considerably higher and the department leadership indicated they underestimated the proposed overtime. The table below illustrates the actual overtime for the following years:
Table 55: Actual Overtime Costs Year Actual Overtime 2010 $195,189 2011 $194,667 2012 $164,000
Station Coverage Callback Only All career shift personnel are assigned to Station #1 and shift sizes range from a maximum of seven to a minimum of four on-duty firefighter/paramedics. By department policy the career off- duty callback occurs when there are less than four on-duty personnel in the station (e.g., on-duty crew responding on an emergency call).
Callback currently is limited to utilization of career persons only with no involvement of the paid-on-call personnel. Therefore, the department leadership estimates that 93.4% of all calls require callback of off-duty personnel. When off-duty are called back they are paid an hourly rate of their base hourly rate times 1.987% per hour and guaranteed that rate based on 2.2 hours minimum for the callback. The table below illustrates the cost of callback for one off-duty career employee for a call that lasts from one to three hours:
McGrath Consulting Group, Inc. Page 256
Table 56: Emergency Callback Cost per Entry Level Member Length of Callback Base Hourly Rate Callback Earned 1 hour callback $19.55 $85.46 2 hours callback $19.55 $85.46 3 hours callback $19.55 $124.31
In 2013 there were 2,634 emergency incidents and the fire department leadership indicated that 93.4% of the time callback is required; therefore 6.74 calls per day required callback of off-duty personnel. The table below illustrates the maximum number of callbacks (100%) a single individual to if they only made 5% of all callbacks.
The dollar figure is based on an entry level firefighter/paramedic at $19.55 per hour. Of course the number of off-duty members responding back on a callback would vary from one to all 14 off-duty members depending on the nature of the call, number of on-duty personnel that day, if there were multiple simultaneous incidents, etc.
To clarify, in the table below the hourly salary is $19.55. At 6.74 callbacks per day, the overtime pay at base times 1.987 times minimum of 2.2 hours is illustrated. Also if the member came back on 100% off-duty callback to only 5% of the callbacks.
Table 57: Overtime Costs - Emergency Callback 5% to 100% One Average 2.3 Calls % of Callbacks/1 Maximum CAFD Year Callback/Day Employee Employees /Day Member Annual Costs Costs Callback/Call
2013 6.74 100% = 243 $139,969.52 $321,929.90 $1,959,573.31 7.22 75% = 182 $104,833.14 $241,116.22 $1,467,663.96 50% = 122 $70,272.76 $161,627.36 $983,818.70 25% = 61 $35,136.38 $80,813.68 $491,909.35 15% = 36 $20,736.23 $47,693.32 $290,307.16 10% = 24 $13,824.15 $31,795.55 $193,538.10 5% = 12 $6,912.08 $15,897.77 $96,769.05
McGrath Consulting Group, Inc. Page 257
Calls Callback % of Callbacks/1 One Employee Average 2.3 Employees Maximum CAFD Year /Day /Day Member Costs Callback/Call Annual Costs 2013 7.22 6.74 100% = 243 $139,969.52 $321,929.90 $1,959,573.31 75% = 182 $104,833.14 $241,116.22 $1,467,663.96 50% = 122 $70,272.76 $161,627.36 $983,818.70 25% = 61 $35,136.38 $80,813.68 $491,909.35 15% = 36 $20,736.23 $47,693.32 $290,307.16 10% = 24 $13,824.15 $31,795.55 $193,538.10 5% = 12 $6,912.08 $15,897.77 $96,769.05
This amount of overtime can be significantly reduced by utilizing the paid-on-call staff for non- emergency patient transports and augmenting the on-duty shifts.
Other Services and Charges This expenditure category makes up approximately 16-20 percent of the district’s budget. This includes contracts, insurance, facility costs, equipment, and maintenance. Expenditures for this level of total expenses are common amongst fire departments. Based on the three-year average, there is some volatility to be expected in these expenses but they tend to reflect the variety of equipment purchases or maintenance that has to be made on an annual basis.
Grants The district has been very successful in receiving grant funds, with the most recent being the Bush Foundation Grant. The district has received over $2.0 million in grant funds since 2009. Grants can be a tremendous method to leverage local funds and meet department objectives. It is very important that grant funds are appropriately tracked and accounted to ensure the district is compliant with the grant’s stipulations and with federal and state laws. Further, these grant funds should be incorporated into the annual audit.
Net Assets The district’s net assets are very healthy. Based on the 2013 audited statements, the district had year-end unrestricted net assets of $1,138,960. Given the department’s 2013 total expenses of
McGrath Consulting Group, Inc. Page 258
$3,187,833, the district maintains a ratio of 36% of unrestricted assets to total expenses. This is a very healthy ratio. The best practice recommendation is 40% net asset ratio; however, it is uncommon for non-profits to achieve said ratio, so that fact that the district has achieved this level of unrestricted cash bodes well for its cash management and future operations. This liquidity would serve the department well in the event of an emergency or lawsuit for which insurance didn’t provide coverage.
While the district has adequate cash on hand, it is important that the board monitor the cash used in order to meet its “duty of care” responsibilities on the board. There should be a statement of cash flow report that the board reviews monthly at its regular meeting. Additionally, the administration should provide the board with a quarterly financial update.
Financial Policies There are three financial policies that the Cloquet Area Fire District provided. This was a purchasing policy, capital asset policy, and investment policy. All of these policies are consistent with best practices for reduction of risk and protecting the district’s assets. However, all of these policies are limited to procedural functions. For example, the steps required to spend money and purchase goods. While the policy is solid, it is limited in scope.
Given the relative youth of the organization, it would be a great time to adopt overall Financial Policies for the organization. These would not be limited just too procedural items, but would lay the foundation from which the annual budget is built. For example, determining the target for net assets. A proposed list of best practice financial policies are provided below for additional consideration.
Cloquet Area Fire Comprehensive Financial and Budget Policies The Cloquet Area Fire District is accountable for the use of public dollars. The following comprehensive financial and budget policies adopted by the board establish the framework for the district’s overall fiscal planning and management to ensure that it fulfills its fiduciary responsibility.
McGrath Consulting Group, Inc. Page 259
The district’s publicly adopted financial and budget policies show the credit rating industry and prospective investors (bond buyers) the commitment to sound financial management and fiscal integrity. The financial and budget policies also improve the district’s fiscal stability by helping officials plan fiscal strategy with a consistent approach.
Written financial policies provide a set of guidelines that aid in ensuring that the district manages its financial resources in a manner consistent with board direction and best management practices. The policies included in this document reflect the district’s intent to manage its financial resources in the highest standards of prudence and professionalism.
General Financial Philosophy The fundamental purpose for the existence of the Cloquet Area Fire District is to provide essential fire and life safety services. The essential nature of these services for the safety and quality of life to residents, business operators and their employees, and visitors requires the district to manage its resources so that there is never any interruption or deterioration of these services.
It is the goal of the district to maintain a strong financial condition sufficient to: • Withstand the ups and downs of the local and regional economies; • Efficiently respond to changing service requirements and reimbursement requirements whether mandated by federal or state government or desired by our customers;
Budget and Net Asset Policy The annual budget provides for two separate and important purposes. First, and most importantly, it provides for control of district spending through the required adoption by the board. Secondly, the line item level, detailed budget provides an annual business plan for fire administrators.
Fire district administration shall annually prepare a balanced budget showing all planned expenditures and identifying all resources sufficient to fund the planned expenditures. The
McGrath Consulting Group, Inc. Page 260
annual budget must be adopted by the board in conformance with the district bylaws and the laws of the State of Minnesota.
The annual budget shall comply with the following general policies:
1. Ongoing expenditures are funded by ongoing revenues Ongoing expenditures shall be funded to the maximum extent possible through ongoing revenues and the city should minimize any reliance on non-recurring revenues for funding ongoing operational costs (e.g., operational grants or windfalls). Debt should not fund operational expenditures. Non-recurring revenues will be used primarily to fund one-time costs or to enhance cash balances for future needs.
2. Net Assets The district shall aim to achieve a total ratio of 40% of net assets to overall expenditures. These net assets are unrestricted reserves, but the accumulation of such reserves at that level shall provide sufficient cash flow for regular operating expenses throughout the year. These net assets also provide coverage in the event of an emergency of such a nature that the normal contingency funds are unable to cover the generated costs.
3. Contingency funds A contingency fund will be created consistent with state law and the district bylaws in the annual operating budget that can be used to cover unexpected costs that develop through the fiscal year. Use of these funds is covered in the district’s purchasing policies.
4. Financial forecasting The district fire administration shall maintain a rolling five-year forecast of revenues and expenditures that will provide a mid-range indication of the district’s financial trends and provides context and mutual understanding between the administration and board for the preparation of the annual budget. The five-year forecast should assume continuation of current service levels, including known changes that will occur during the forecast period.
McGrath Consulting Group, Inc. Page 261
5. Use of Net Assets to balance the budget Any utilization of Net Assets or other reserves to fund a portion of the annual budget general operating expenditures is discouraged, however if it is utilized, it will be clearly identified and be consistent with the district’s policies and state law.
6. Restricted revenues and expenditures Restricted revenues and expenditures shall only be used for purposes consistent with whatever restrictions were placed upon their use by laws, regulations or board direction.
7. Accrued Employee Benefits The budget, reserves, and the long-range financial plan, should provide for adequate funding of the district’s employee compensation liabilities.
Reserve and Fund Policies The purpose of the Reserve and Fund Policies is to establish general parameters for the cash balances in the various funds to ensure sufficient resources to handle most large, unexpected expenditures without the need for debt, to mitigate revenue shortfalls stemming from a downturn in the local economy and to maintain favorable credit ratings.
Net Asset Reserve Policy - The budget will have a minimum reserve of 25% of budgeted expenses to maintain operations. Recommended "best practices" is to maintain a 40% reserve that will be the "target" reserve. No use of net assets below 25% will be authorized without a vote of the majority plus one ("super majority") of the board.
Revenue Policy Service demands require that an adequate revenue stream be maintained. To this end, the district will strive to create a stable revenue structure using the following as general guidelines:
• The district will pursue its fair share of state and federal shared revenues; and
McGrath Consulting Group, Inc. Page 262
• The district will, to the extent possible, oppose state and federal legislation that will mandate costs or reduce revenues to the district without providing an alternative revenue source to offset those mandated costs or revenue reductions; and
• The district will pursue collection of all revenues due it and ensure compliance with revenue-related regulations; and
• The district will consider user fees when the character of the service and its users seems appropriate and, if user fees are charged, the user fee will be structured to recover the full cost of the service including all direct costs, capital costs, department overhead and city-wide overhead. Full cost recovery may be foregone if the fees prevent an individual from obtaining this essential service or results in the district being economically disadvantaged, or as otherwise set by the board; and
• The district will seek opportunities to generate additional revenues and gain further economies of scale in its operations by providing services to other local jurisdictions in exchange for the full cost of the services provided.
Debt Management Policies The policy of the district is to manage its long-term debt in a manner designed to utilize its credit to optimize district services while balancing overall debt levels and annual debt service obligations.
1. Debt shall not be used for Operating Expenses. The district shall not use debt to cover annual operating expenses.
2. Term of Debt Long-term debt will be structured in a manner so that the life of the debt does not exceed the expected useful life of the asset being funded by the debt.
3. Method of Sale of Bonds and Notes The district will obtain the most competitive pricing on debt issues and broker commissions in order to ensure a favorable value to the district's customers.
McGrath Consulting Group, Inc. Page 263
4. Refunding Bonds As a general rule, existing bonds will not be refunded through the issuance of refunding bonds unless the refunding plan will achieve a net present value savings of at least 5%. As an exception to this general rule, bonds may be refunded to obtain more favorable covenants when it is clearly in the city’s interest to do so.
5. Preservation of Credit Rating The district will carefully consider the future fiscal impacts of incurring additional long- term debt and will recognize the implicit, additional costs of any future debt that might adversely impact the district's credit rating.
Accounting and Financial Reporting Policies The district will maintain its accounting records in accordance with state and federal laws and regulations. Budgetary reporting will be in accordance with Minnesota state budget laws and regulations. The district will annually report its financial condition and results of operations in accordance with state regulations and generally accepted accounting principles (GAAP).
Additionally, the administration shall prepare such management reports and other internal reports as determined by the board.
Audit Policy The Comprehensive Annual Financial Report (CAFR) will be audited annually as required by state law. The results of such audits shall be communicated promptly to the Board. Such audit reports shall also be kept on file and will be available for public inspection in accordance with the State of Minnesota’s Open Public Records Act.
Additionally, the district may, from time-to-time, retain other auditors or consultants to perform such operational reviews and/or performance audits as are judged to be in the district's interests.
McGrath Consulting Group, Inc. Page 264
Insurance Policy The district will periodically review its insurance options for each risk or hazard and medical options to determine whether it is most cost-effective to purchase commercial insurance, to fund a self-insurance program or to participate in a "pooled" self-insurance program. Such a determination should consider the long-term financial obligations of such a decision as well as the regular fluctuations in commercial insurance markets. Where the district decides to self- insure a risk, the policy will be to fully fund the expected costs of those risks through actuarial or other professional estimates of those costs.
Capital Budget and Planning Policies Long-range planning should be done for the replacement or construction of capital facilities and major equipment. Project cost estimates for the capital budget should be based upon a thorough analysis of the project and be as comprehensive as possible, including but not limited to, preliminary and environmental work, property acquisition, design, project administration, testing, construction, applicable taxes, and contingency. All cost estimates should include an escalation estimate for future years, from the year of estimation, using an appropriate rationale for the project.
The capital budget shall include only those multi-year projects that can reasonably be accomplished. The detailed sheet for each budgeted capital project will include a project schedule. A capital project will not be budgeted unless there is a reasonable expectation that revenues will be available to pay for it.
Consideration should be given, where feasible, to financing capital projects through user charges and/or special assessments charges to those who are benefitted the most by the project.
Comprehensive resource plan Capital proposals shall include a comprehensive resource plan. This plan should include the amount and type of resources required, and the funding and financing strategies to be employed.
McGrath Consulting Group, Inc. Page 265
The plan shall include total project costs as well as the specific resources needed to complete each project phase.
Impact on overall Capital and Operating Budgets All proposals for expenditure of capital funds should be formulated and presented to the board within the framework of a general capital budget. Other than in emergency situations or external funding opportunities any commitment of any capital funds, including reserve funds, will be considered only as part of a general review of all capital budget requirements. Project proposals should indicate the project's impact on the operating budget, including but not limited to, long-term maintenance costs necessary to support the improvement.
Contingencies At the time of contract award, each project will include reasonable provisions for contingencies. The amount of set aside for contingencies will correspond with industry standards and should not exceed 10% or $5,000 whichever is greater of the contract amount unless a higher percentage is approved by the board.
Project contingency funds should only be used to pay for unforeseen needs within the original project scope. Project contingencies will not be expended to cover change orders resulting from increases in project scope unless specifically authorized by the board.
Recommendations - Fiscal The board, in cooperation with the administration, should review the department’s Financial Policies and Procedures paying particular attention to the desired level of net assets and its cash position. While 40% is a recommended best practice, with current revenue streams, it is likely that this number will be exceeded. If there is a desire to rebalance the net assets, these balance of the funds could be reused for a strategic purpose or for some other investment. Priority 3
Review the Department’s Health Insurance program. Make sure it is compliant with the regulations under the Affordable Care Act. Furthermore, determine the value of the department’s health insurance plan, and make sure it falls under the threshold of the upcoming 2018 Cadillac Plan Tax. This tax on health insurance plans over this McGrath Consulting Group, Inc. Page 266
threshold could result in a tax up to 40% of the value of the plan over the threshold. Priority 5
The board should receive regular monthly reports on the statement of cash flows, net assets, and overall balance sheet for the organization so that the board can meet its required responsibilities. The board should also receive quarterly financial reports and presentations from the administration. Priority 1
Review the overall financial policies for the Cloquet Area Fire district included in this report to build a solid base for financial sustainability for the district. Priority 5
McGrath Consulting Group, Inc. Page 267
Summary of Recommendations/Implementation This section lists all the recommendations within the report in priority order utilizing the ranking described in the table below: This section is also provide to the client in a Excel format (disk will be provided) so the board and department leadership can reclassify the recommendations as they deem most appropriate; after which the list becomes a implementation guide.
Table 58: Recommendation Priority Table Priority Number Time Frame Recommendation
1 Immediate 2 Within six months 3 Within one year 4 Long term 5 Information only
Priority Objective Recommendation The board has expressed desire to expand the consolidation and create greater partnerships with their neighbors; however, they seem completely oblivious to the Department 1 department culture that not only prohibits additional consolidation but threatens the Culture very existence of the current one. This issue needs to be addressed head-on and immediately. A great fire department cannot be managed by a committee. The board of directors needs to allow the chief to be the leader of the department. To accomplish this they 1 Governance need to clearly define their expectation in writing and hold the chief accountable for accomplishing those goals. The department leadership should identify what data they require on a monthly basis. Emergency 1 This data should be the single source of information that is shared with the board and Activities department members. Emergency The department leadership needs to routinely utilize data in the management of the 1 Activities organization. Emergency Emergency incidents that require additional resources should be recorded as a single 1 Activities event and not as separate multiple incidents. A data quality control/assurance program should be implemented and the battalion Emergency 1 chiefs responsible for ensuring all data/record management computer entries are Activities complete and correct. Recording of simultaneous/overlapping call data should be a high priority and those Emergency calls should be categorized into fire and EMS. The ability to identify incident when 1 Activities more than two simultaneous/overlapping events are occurring (three, four, etc.) should be emphasized. Emergency A figure of 78.96% of calls not being identified as to where they occurred should be 1 Activities resolved immediately.
McGrath Consulting Group, Inc. Page 268
Priority Objective Recommendation Most people would consider the most important piece of data pertaining to a fire/EMS department performance would be their response times. Unfortunately, no credibility 1 Response Times can be placed on CAFD response times; the department needs to address this issue immediately. EMS System Consider developing programs and effective training within the district to foster better 1 Oversight working relationships between the career personnel and the paid-on-call staff. EMS System Institute a policy to have the on-duty shift commander remain within the CAFD 1 Oversight response area during his/her tour of duty. EMS System CAFD should seek proposal every two years from medical billing service in order to 1 Oversight obtain the best price and service reimbursement as possible. The CAFD is classified as a “combination” department and therefore, the Authority National 1 Having Jurisdiction can choose to use either NFPA 1710 or NFPA 1720 as the Standards benchmark for quality. The consultants recommend aligning with NFPA 1720. National The fire department leadership must ensure that the OSHA “two-in/two-out” rule is 1 Standards practiced on all structure fires. Leadership must address the working relationship between the career and paid-on-call 1 Staffing members and integrate them into a single cohesive team. The chief implement a more “hands-on” style of management in addressing the division 1 Staffing between the career and paid-on-call members. The hiring process for the position of assistant fire chief should begin immediately and 1 Staffing the individual in place within the next nine months. The hiring process for the position of administrative assistant should begin immediately 1 Staffing and the individual in place within the next six months. The fire chief should be involved in the interview process – either with the screening of HR applicants; or interviewing the final candidates. Along with the recommendation of 1 Administration interview committees, the fire chief should be ensuring a fit within the organization’s culture. Although emphasis needs to be placed on promotion through conducting promotional HR exams on a regular basis, and opening up the process to internal and external 1 Administration employees, with the age and years of service makeup of the department, emphasis needs to be placed on training and employee involvement. HR Supervisory personnel should be trained in proper techniques to document and 1 Administration administer discipline. Carlton County PSAP should implement emergency medical dispatching as soon as the 1 Dispatch/PSAP minimum on-duty staffing is raised to two dispatchers. Both PSAPs should investigate technology that would provide a more accurate time in 1 Dispatch/PSAP the category of Create to Entry time; thereby, allowing the total 9-1-1 to dispatch time to be easily identified without having to make adjustments. The planning for a new headquarters fire station which will house apparatus from existing Stations #1 and #3 including the fire department administration, training, fire 1 Facilities prevention, classroom, and meeting rooms should begin immediately with a final construction date of 18 months. All new fire/EMS facilities should be equipped with a total capture emission exhaust system that is OSHA approved. Renovation of any facility that it is anticipated will 1 Facilities continue to serve as a fire station for the next five years or greater should be immediately renovated to include the emission exhaust system. 1 Facilities The fire pole in existing Station #1 should be removed as long as the station is in service 1 Apparatus CAFD should adopt the recommended apparatus replacement schedule as presented in
McGrath Consulting Group, Inc. Page 269
Priority Objective Recommendation the report. CAFD should rechassis the ambulance after the seven-year life expectancy has been 1 Apparatus reached allowing for seven more years for the patient compartment usage. CAFD should create a capital apparatus replacement fund and amortize the finding for 1 Apparatus each year to reach the purchase price of the replacement apparatus. The consultants question if the current training program can be resuscitated; rather, a 1 Training training program should start afresh with the development of a training taskforce. The fire chief must clearly articulate his expectations of the training program and 1 Training ensure all members are held accountable to follow the training schedule, ensure participation by members, and record training accurately. The integration of career and volunteer joint training sessions should be mandated 1 Training immediately, which includes both fire and EMS topics; career members working the evenings of volunteer training should be required to participate in that training. The chief should assess the staffing of the training division ensure that the Battalion 1 Training Chiefs are assigned to the taskforce. The training taskforce should identify expectations, set goals and timelines to develop a 1 Training realistic training curriculum that assures required training, competency, data entry, and quality control is assured. All career shift personnel should be required to obtain the ISO 240 hours of fire training 1 Training plus the mandatory EMS training. Training Division should identify the classes/topics needed annually to comply with 1 Training state, federal, or other regulatory agency rules. All instructors should enter training details into the record management system including: training topic, date, time, location of training, class objective, class 1 Training attendance (attendees must sign), audio/training aids utilized, means utilized to ensure competencies, training participant’s feedback, and notes/comments on how the instruction could be improved. An assessment of the current record management system should be undertaken to determine that it meets the needs of the district. Whatever date record management 1 Training system is chosen the department leadership must ensure all members receive training from the software provider. A policy should be developed, that requires the battalion chiefs to ensure that members missing training are identified and provided a means to obtain the necessary training. 1 Training Those missing mandatory topic should receive notification from the training division immediately. On a monthly basis the Training Officer should review all training records to determine whether training benchmarks are being achieved, records are accurate, ensure 1 Training members participation, deficiencies should be immediately address and remedial or disciplinary action taken as appropriate. Fire Prev./Safety 1 Safety education should include programs to reduce the number of false alarms. Ed. The board should receive regular monthly reports on the statement of cash flows, net assets, and overall balance sheet for the organization so that the board can meet its 1 Fiscal required responsibilities. The board should also receive quarterly financial reports and presentations from the administration. Department 2 The CAFD board should fill the position of deputy fire chief within the next six months Culture
McGrath Consulting Group, Inc. Page 270
Priority Objective Recommendation The need for a second-in-command is essential. This individual should possess strengths in areas of in which the chief’s attributes are not the strongest. Although the 2 Governance position should be open to both internal and external candidates the department would most likely benefit most from an external experienced candidate. Emergency Emphasis should be placed on improving the data/record management system that will 2 Activities fully integrate both fire and EMS incidents into a single source. All fire department officers (chief to captains) should receive formal training from the Emergency data/record management system provider on how to properly code and enter 2 Activities emergency incidents into the software program. The chief and battalion chiefs should also receive formal training on proper query and retrieval methods of data. Emergency Emergency medical calls should be classified into two major categories: Emergency and 2 Activities Non-emergency (pre-arranged inter-medical care facility transports). Emergency Emergency incidents responses by district should be consistent when recording calls 2 Activities both in fire and EMS. An additional data field of EMS calls by city is very appropriate. Consider incorporating paid-on-call EMTs into the current delivery of EMS services EMS System 2 including, but not limited to, covering the ambulances during emergencies, and Oversight providing non-emergency transports. EMS System Develop a schedule to provide for more paid-on-call participation during certain hours 2 Oversight of coverage for Stations #2 and #3. The fire department should not adopt either NFPA standard. Adoption would include National 2 the adoption of all OSHA and NFPA standards by reference. However, a plan should be Standards developed to meet as many NFPA 1720 standards as possible in the future. The CAFD should adopt the new organization chart as illustrated and defined in the 2 Staffing report. The training/safety officer role should be reassessed, redefined, and implemented with 2 Staffing new clear job expectations and accountability. Develop a schedule for volunteer participation to provide certain hours of coverage for 2 Staffing Station #2. The district should hire a full-time administrative assistant to handle all bookkeeping, HR 2 human resource responsibilities, and administrative support to officers. This can either Administration be a shared position with the city, or a stand-alone position within the fire department. Update the application packet for POC and full-time personnel as recommended, eliminating all areas that could be perceived as discrimination. Incorporate some of HR the application materials to the separate authorization for background checks. Make 2 Administration sure all supplement application materials are separated from other application materials by the HR assistant, so as not to be perceived as items for applicant discrimination. HR 2 Ensure that the hiring of full-time members includes external and internal candidates. Administration Develop a new employee orientation checklist for POC and full-time members to be HR completed and signed by the employee and the trainer. The city’s checklist may be 2 Administration sufficient for full-time employees, but should also include information specific to the fire department. POC employees are also subject to overtime per the FLSA. A work cycle should be HR 2 established and in the event a POC works more than the established hours in the work Administration cycle, overtime is paid. HR The various overtime rates should be eliminated and only the federal rate of time and 2 Administration one-half should be paid. If necessary, based upon a compensation comparable
McGrath Consulting Group, Inc. Page 271
Priority Objective Recommendation analysis, salaries should be adjusted to reflect the fire department market.
HR 2 Develop a committee to work on revising and simplifying the evaluation forms Administration The department needs to focus on operational training (see Training section) and HR 2 supervisory training. A full list of non-operational training can be found in the Training Administration Section. Further, the department needs to work toward one where there are committees, task forces, etc. where employees are involved in determining the operations and direction HR 2 of the organization. For example, an employee (FT/POC) – management committee to Administration redesign the evaluation form and process. Several committees to continually maintain and update the department’s SOG’s. HR 2 Update the Personnel Manual and reorganize it for easier understanding. Administration Carlton County PSAP would benefit from renovating the facility and ensuring that 2 Dispatch/PSAP minimum dispatchers on-duty would be two. 2 Dispatch/PSAP Carlton County PSAP should develop a former quality control/assurance program. All fire stations should have a fire suppression system (sprinklers) and fire alarm system 2 Facilities that is monitored by one of the PSAP. A standardized training schedule should be developed indicating all training 2 Training activities/sessions for a minimum of six months in advance; thereby, developing a holistic view identifying when mandatory subject training dates are published. All fire department officers should be required to teach a subject in which they have 2 Training areas of expertise. Ranks below officers should be included if they have special knowledge of pertinent subjects. The pre-plan program (addressed in Fire Prevention section) should be integrated into 2 Training the department’s training curriculum. The department leadership should replace the “Task Book” with Job Performance Requirements (JPR) as defined in NFPA 1001 Standard for Firefighter Professional Qualifications – 2013 Edition 3.3.6: Job Performance Requirement – A written 2 Training statement that describes a specific job task, lists the items necessary to complete the task, and defines measurable or observable outcomes and evaluations areas for the specific task. Both volunteer and career members must complete all items described in the new JPR 2 Training before they are fully released for fire suppression assignments. The JPR is a better means to measure and document competency. Semi-annually the fire chief, training officer, and safety officer should mandate, and 2 Training observe, competency/proficiency testing of all personnel. The goal is to identify deficiencies and develop remedial strategies to immediately address them. Develop a “Fit for Duty” medical testing in conjunction with the semi-annual 2 Training competency/proficiency testing. A minimum of two hours per month of officer training in addition to all other training 2 Training requirements should be mandated. The training officer should be evaluated and held accountable for the department’s 2 Training overall training program by the fire chief on a quarterly assessment. Whenever possible the department’s certified instructors should be more involved in 2 Training the overall development of the training curriculum, act as instructors, and perform competency testing.
McGrath Consulting Group, Inc. Page 272
Priority Objective Recommendation Company “hands-on” fire training should be conducted quarterly with mutual-aid 2 Training department to assure a cohesive working relationship. Fire Prev./Safety Pre-planning should become part of the training curriculum and mandated for all 2 Ed. emergency responders. Fire Prev./Safety 2 The CAFD fire investigation team and use of a K-9 should be commended. Ed. Fire Prev./Safety The “Risk Watch” safety program should be investigated and if appropriate 2 Ed. implemented into the safety education curriculum of the CAFD. Emergency Mutual aid data should be recorded so the department leadership should easily be able 3 Activities to recognize what type of aid was given or received and to or from whom. EMS System Consider daytime manning of Station #2 as call volume dictates either through career 3 Oversight personnel redistribution or through utilizing of paid-on-premise personnel. The standards of response coverage is a worthwhile internal assessment to address the Community Risk 3 all hazard risk potential impacting the department. Within the next year the CAFD (SORC) should utilize this tool in revising a strategic plan. The CAFD should hire three additional career members bringing shift staffing to eight 3 Staffing firefighters/paramedics per shift. Minimum daily on-duty staffing should remain at four. A paid-on-call group should be trained to provide non-emergency patient transports 3 Staffing allowing the on-duty paramedics to remain available for emergency responses. Patient condition will warrant if paramedic transport is needed. 3 Staffing A paid-on-premise program should be implemented to augment on-duty staffing. All individuals involved in interviewing should receive formal training on interviewing HR 3 techniques as well as state discrimination laws. Or, the administrative human resource Administration assistant should sit in on these interviews to ensure compliance. HR Develop a process for those who wish to be a new member advisor. Establish minimal 3 Administration criteria to be considered for this position. Update the system to one base rate with additional compensation for HR skills/responsibilities. Evaluate if the list of skills/responsibilities is in need of updating 3 Administration to ensure a skill set that deals with the host of operational activities within the department. Full-time employee payroll should be based on actual hours worked within the pay HR 3 period. Further, overtime should be paid on the pay period closest to the conclusion of Administration the 21 day cycle – not biweekly. HR Consideration should be given to the implementation of Kelly Days on the work cycle 3 Administration with the greatest number of hours to offset the cost of overtime. Consideration should be given to reducing the percentage between steps on the full- HR 3 time salary schedules; as well as looking at the structure of the schedules to allow for Administration movement to the next pay range due to internal promotions. HR Train all supervisory employees on how to conduct performance evaluations and 3 Administration performance documentation techniques. Consider adding a self-evaluation component to the evaluation process. This would aid HR 3 the supervisor in completing the form and make the employee an integral part of the Administration process. Job descriptions appear to be comprehensive and recently updated. Ensure that what HR is valued within the organization is aligned on both the job description and the 3 Administration performance evaluation to ensure continuity. Distribute the job description along with the annual review to keep the job description updated.
McGrath Consulting Group, Inc. Page 273
Priority Objective Recommendation Continue to ensure that these manuals are kept up-to-date, members understand and HR 3 adhere to the policies, and all receive on-going training on the department’s rules and Administration regulations. HR 3 Place both manuals on the department’s intranet to ensure access by all personnel. Administration 3 Facilities Planning should begin to provide on-duty 24 hour facilities at Station #2. All members’ training files (jackets) need to be completely revamped placing training certificates separate from training records. All material should be in chronological 3 Training order with a summary sheet as the first document (reference NFPA 1401 for an example). Any material that would be restricted by HIPPA should not be accessible to anyone other than the fire chief. All new candidates for command or supervisory position should have formal training in those areas prior to their assignment to the position. The training should be 3 Training commensurate with the complexity and nature of the position. This training should be made available to individuals who might “act” in a command or supervisory position. That the department adopt all 16 Life Safety Initiatives as described in the “Everyone Goes Home® , specifically Initiative #5, develop, and implement national standards for 3 Training training, qualifications, and certification (including recertification) that are equally applicable to all firefighters based on the duties they are expected to perform. Fire Prev./Safety CAFD should become involved in fire inspections for the entire fire district including the 3 Ed. tribal community as permitted. The board, in cooperation with the administration, should review the department’s Financial Policies and Procedures paying particular attention to the desired level of Net Assets and its cash position. While 40% is a recommended best practice, with current 3 Fiscal revenue streams, it is likely that this number will be exceeded. If there is a desire to rebalance the net assets, these balance of the funds could be reused for a strategic purpose or for some other investment. Emergency The Cloquet Area Fire District Board and department leadership should become very 4 Activities active in the adoption and implementation of the MABAS. As soon as possible the fire chief and administration offices should be moved in a new 4 Staffing headquarters facility. When possible, the written and physical agility testing should be completed by the local Human 4 college as it is for full-time applicants. This was highly regarded by the fire chief; Resources however, it is the college’s policy – at this time – to not include POC applicants. Carlton County PSAP should encourage the cellular phone service providers to bring all 4 Dispatch/PSAP of their cellular technology to a Phase II level. 4 Apparatus Consideration should be given to placing one of the ambulances in Station #2. Emergency The department should be commended on having a lower than national and State of 5 Activities Minnesota average for false alarms. Although incidents by time of day, day of the week, and month did not indicate any Emergency 5 immediate need for peak staffing these data areas should be reviewed as part of the Activities monthly evaluation of emergency activities by the department leadership. Community Risk All future capital expenditures should be evaluated against the SORC distribution, 5 (SORC) concentration, and reliability criteria. An ISO Class 4 is an excellent insurance classification and the consultants question the National 5 advantage of investing more resources solely for the purpose of attempting to improve Standards to a Class 3 department.
McGrath Consulting Group, Inc. Page 274
Priority Objective Recommendation The fire department should not seek international accreditation (CPSE) at this time; National rather it should allow the new fire chief to establish his/her strategic initiatives and 5 Standards concentrate effort on better documentation. The CPSE can be used as a guide in reviewing department operations and the types of documentation needed. Consider daytime manning of Station #2 as call volume dictates either through career 5 Staffing personnel redistribution or through utilizing paid-on-premise personnel. The interview questions should be expanded to include more background and general HR information of the applicant. Work history, motivation, and evaluating past 5 Administration performance examples are better indicators of an applicant’s ability to perform the job than just gaining an understanding of district expectations. Supervisory personnel need to develop coaching, mentoring, and performance HR 5 management skills to understand the motivations and contributions of employees. This Administration information should be utilized to develop continual training opportunities for staff. HR 5 Consider recommended changes in the union contract in future negotiations. Administration St. Louis County PSAP is a state-of-the-art communication center. With considerable 5 Dispatch/PSAP redundancy for emergency situations. Station #1 and Station #3 should be consolidated into a new headquarters facility with 5 Facilities seven drive-thru apparatus bays. The new headquarters fire station should be owned by the Cloquet Area Fire District 5 Facilities Board. The location of the new headquarters facility should still allow a four minute drive time 5 Facilities to the downtown area of the City of Cloquet. Fire department administration offices should be moved to the new headquarters 5 Facilities facility placing fire department leadership, management team, and headquarters on- duty shift personnel in the same facility. Consideration to the list of features for a new headquarters station (listed in the report) 5 Facilities should be built into the new headquarters facility. The costs for the new headquarters facility and metal storage building for training units 5 Facilities is an estimate and would need to further confirm with an architect. After the consolidation CAFD has eliminated some unneeded or duplicated apparatus 5 Apparatus and equipment. With the recommendation of consolidating stations #1 and #3 a new apparatus assessment should be conducted by the department leadership. Evaluate the costs and satisfaction of utilizing the city’s maintenance facility after 12 5 Apparatus months of usage. Fire Prev./Safety The implementation of a fire inspection program will require the position of fire 5 Ed. marshal be created. Fire Prev./Safety All pre-planning documents should be available to the emergency apparatus using 5 Ed. mobile data terminals or other technology. The CAFD commitment to public safety education and use of a public education Fire Prev./Safety 5 coordinator is an excellent program and should continue to be given the needed Ed. resources. Review the department’s health Insurance program. Make sure it is compliant with the regulations under the Affordable Care Act. Furthermore, determine the value of the 5 Fiscal department’s health insurance plan, and make sure it falls under the threshold of the upcoming 2018 Cadillac Plan Tax. This tax on health insurance plans over this threshold could result in a tax up to 40% of the value of the plan over the threshold.
McGrath Consulting Group, Inc. Page 275
Priority Objective Recommendation Review the overall financial policies for the Cloquet Area Fire District included in this 5 Fiscal report to build a solid base for financial sustainability for the district.
McGrath Consulting Group, Inc. Page 276
Appendix A: Data Request Data Requested – McGrath Consulting Group, Inc. - Fire/EMS Component
Show each year data separately i.e. 2011, 2012, and 2013 – do not group them
We request data in an electronic format on a flash drive or disk
If an area does not apply simply indicate NA
Do not send this information. Once collected we will meet with you on site to review it. Call if you have any questions – especially before conducting hand counts
General Information Overview of the department History Overview of the area protected District City/Village Population – Residents of Protection Area In-flux or Out-flux of Daytime Population Department’s Strategic Plan
Response District – Map Of Coverage Area Map Of the District Map Of Area Of Concern For Relocation Of Station Map Of Contiguous Surrounding Area Showing Department Stations Locations Total Square Miles Protected Square Miles Of Hydrant Area Square Miles Of Non-Hydrant Area
Personnel Management/Human Resources Current Roster Of Members Personnel (information needed for all employees) List of members (sworn and non-sworn) Hire date
McGrath Consulting Group, Inc. Page 277
Age or date of birth Organizational Chart # of Career # of Paid On Call # of Paid On Premise # of Volunteers # of Other Employees (Include civilian) Rank Structure (Number Of Employees In Each Category) Current salary of each employee (name, rank, salary) Spreadsheet – name, rank, current salary, (if possible, a spreadsheet with the benefit breakout -health, pension, taxes, etc. for fiscal year of the study) Labor agreement Department’s By-Laws (if corporation) Police & Fire Commission or Civil Service Regulations Employee Policy & Procedure Manual (prefer electronic version) Promotional Process – including forms utilized History Of Turnover (All Employees Last 3 Years – Include Reason and/or Exit Interview Data) Recruiting/Retention Programs Hiring Process (all forms) Application Hiring packet Reference questions Interview questions Etc. Grievances/Discipline Issues Performance Evaluation process and forms Last year’s overtime by employee – include rank FLSA pay cycle (if not in contract) SOG/SOP Manual – prefer electronic copy – (sure to include HR policy section) ESD and/or Department Employee’s Handbook New employee Orientation Process – (packet and/or forms)
The Department Department SOG’s Department Rules & Regulations Annual Reports – Last 3 Years Current ISO Rating Last ISO On-Site Evaluation (copy of point distribution sheet) Accreditations – National Or State Last On Site Evaluation
McGrath Consulting Group, Inc. Page 278
Others
Emergency Activities – Last 3 Years (All Sub-Sections) # Of Emergency Responses (NFIRS) Type of Responses: Structure Fires, Auto Accidents, Brush, Mutual Aid, Fire Alarm Systems Both Commercial &/or Residential, False, Etc. EMS Responses # of: ALS, BLS, non-emergency Transports/Transfers, etc. Incidents By Time Of Day Incidents By Day Of The Week Incidents By Month Calls Breakdown by Area (City, District, Town, Etc.) Distribution by Shift Distribution by Station Response Times: (include documentation from dispatch) Notification time Turnout time Drive time Mitigation time Mutual Aid – Auto Responses (Given & Received) – With Whom? – Copy(ies) of Written Agreement Simultaneous (Overlapping) Call Data
Dispatch (PSAP) Who provides dispatch Cost Dispatch data – time from receiving call to FD notification Who answers 9-1-1 Who answers cellular 9-1-1 # of Employees # of Shifts Staffing per Shift (minimum & maximum) EMD Program Dispatchers/Call Taker Certifications
Fire Station(s) – include mailing address for each station – include City & Zip Current Facilities # Of Stations – Street Address Square Footage – (Floor Plans for each if available) Age Future Facility Plans/Needs Documents
McGrath Consulting Group, Inc. Page 279
Apparatus & Equipment – Type Of Apparatus (I.E. Engine, Ambulance, Utility, Truck – Include Manufacturer) Apparatus department ID number Pump & Tank sizes Mileage Engine Hour Reading (if appropriate) Vehicle VIN Number Age Of Apparatus Manufacturer Replacement Schedule Special Teams Apparatus Specialized Equipment: Haz Mat, Water Rescue, Etc. Radio, Type And Frequencies Computers (Number of, Type, Age, Replacement Plan) In Apparatus? Software Programs
Training Training Records (Last 3 years) for each member Training schedule Training hours per month per employee Training Curriculum & Lesson Plan Instructors qualifications Training Manual Certifications Categories (state) Special Teams – certifications All current employees certification level
Fire Prevention – Number of inspectable occupancies History Of Inspections & Re-Inspections (Last 3 Years) Identification of Codes Adopted
Safety Education Public Safety Education Programs Public Safety Education Data (Last 3 Years)
Fiscal Operating budget for current year and two previous years (include all revenue and expenses)
McGrath Consulting Group, Inc. Page 280
Capital budget for current year and two previous years (include all equipment purchased and/or projects completed Ambulance information – Ambulance revenue current year and two previous years Ambulance billing contract Copy of ambulance rates charged and authority for those rates i.e. ordinance
Revenue List of grants applied for and/or received for current year and two previous years List 2% fire dues received current year and two previous years List and explanation of any other department revenue received i.e. inspections fees, permit fee, etc. Other information needed: Equalized Assessed Valuation (EAV) if multiple communities for all
Resource Hospital Project Medical Director contact information Involvement level with resource hospital Breakdown of where patients are transported (3 year period)
Any Additional Information Deemed Important
McGrath Consulting Group, Inc. Page 281
Appendix B: New Employee Checklist Sample
Name ______Employee Classification: ______
Start Date: ______
___Personnel Information Sheet ____ Worker’s Compensation ____Changes ____ Immediate Notification ____ Payment of Medical Bills ____ History and Philosophy of this Organization ____ Response to Calls – Full Duty Release ____ Light Duty – Attendance at Training ____ Chain of Command ____ On WC and Restrictions in the Firehouse ____ Uniforms and Dress Code ____ Bylaws and SOGs ____ Bugles ____ Sign-Off Completed ____ Dress Uniform Components ____ Membership Meetings ____ Purchase Of ____ Voting Rights ____ When Required/Not Allowed to Wear ____ Harassment Policy ____ Dress Allowed in the Fire Station ____ Drug-Free Workplace ____ Cleanliness ____ Smoke-Free Workplace ____ Uniform Replacement ____ General Guidelines ____ Sanctioned Uniforms Health & Safety Emergency Gear ____ Bloodborne Pathogens ____ Required Components ____ HEP-B Sign-Off ____ Storage of Turnout Gear ____ NFPA Regulations ____ Cleaning of Turnout Gear ____ Training ____ Emergency Equipment- Storage/Clean ____ Mandatory Training – XX Rehearsals ____Firefighter State Certification ____ Other Training ____ Next Class ____ Monthly Training ____ Books ____ District Tuition ____ Introduction of Course/Registration ____ Firefighter I Certification ____ Tuition ____ EMT-Basic ____ Location ____ Other ____Buddy Program ____ Pager and Courtesy Light _____Assignment of a Buddy ______Sign-Off Completed ____ Probationary Period ____ Distributed _____ Probation ____ Policy ______Turn-In at Termination ____ Squad Assignments _____ Responding to Calls
McGrath Consulting Group, Inc. Page 282
____ How Assigned ____ Staffing Schedule ____ Rotation ____ Phone Numbers and Addresses ____ Job Description Review ____ Parking ____ Length of Service Awards ___ Parking Lot _____ Vesting _____Tour of Stations _____ District/State Contribution _____ Leave Prior to 10 years _____ Leave Trainer Signature______Date ______Member Signature ______Date ______
McGrath Consulting Group, Inc. Page 283
Appendix C: Personnel Manual Critique The Personnel Manual covers all classifications of employees; however, the layout could be better aligned. For example, work rules is the first section in the manual and recruitment is later. Look at the flow of employment when laying out the sections.
There is a technique in word that if you code the titles (use of styles) one can automatically develop a table of contents with page numbers. Using this method will help employees find the proper section when looking up policies. Thus, inserting a table of contents would be very beneficial.
This manual should be written to cover both POCs and employees. Except for a few sections that pertain to time off benefits, most of the handbook applies to all employees/POCs. Thus there are a number of sections that should be written to address both classes of members. The same holds true for union employees, and the Introduction section has a disclaimer in the event a policy conflicts with union contract language. The consultant suggests that this disclaimer be placed in a separate section in the Purpose as well in the Scope.
As discussed, if possible, all new employees (POC or full-time) should receive an orientation on policies that pertain to them, as well that pertain to all members within the CAFD. The following is a critique of the current manual. Items that are absent have no comment and are well-written. As with any manual, it is always a battle to keep it current in the ever changing legal environment.
Appearance: This policy may want to be broadened to discuss what is acceptable appearance while in the station (non-dress uniform), as well as the department’s policy in tattoos, colored hair, piercings; other clothing such as jeans, flip flops, etc. This policy needs to cover not only appearance when in uniform, but also for civilian personnel who may not be in uniform.
Attendance & Absence: The standard is that an employee who is absent for three (3) or more days and does not report per policy is considered resigning employment. Two may be too little;
McGrath Consulting Group, Inc. Page 284
however, the department can always consider extenuating circumstances. What is necessary, however, is that all officers comply with this policy to ensure consistency and avoid perceptions of discrimination. The policy only refers to POC and the attendance requirements – it might be beneficial to put these in this policy as well.
Data Practices Advisory: It is doubtful that any employee would know what the title of this policy pertains to. Rather, call it personnel files. In addition to what is kept, the policy should state if and how an employee can view their file; how many days from the request; that it is not viewed alone; and is there a cost to obtaining copies. In addition, the policy should indicate who, other than the Fire Chief and employee can view the information – for example, can an officer who is considering an employee for promotion view the contents – and if so, are there any restrictions.
Nepotism: It can be problematic when an organization allows the hiring of relatives. The policy should delineate in greater detail what is a “blood” relative; what about step relationships; and there is nothing that restricts family members from supervising one another. A person should not be allowed to supervise relatives. The definition of “close” relatives should also be defined. Finally, the policy should state what happens if there is a supervisory relationship conflict, or what happens if employee marry within the department.
Personal Telephone Calls: Tie this policy into the policies related to use of district phones, computers etc. Should not be a standalone policy.
Smoking/Tobacco Use: May want to consider updating the policy to e-cigarettes.
Compensation: The section on Volunteer/POC compensation is established considering the recommendations of the Fire Relief Association. Who is this? As will be discussed, having an organization chart and delineation of the responsibilities of the various boards, communities, etc., this will help clarify any of these references. Would suggest, however, that the Board has authority over all employees.
McGrath Consulting Group, Inc. Page 285
District Seniority: Remove the second paragraph regarding service in the Armed Forces and place any seniority implications in the Military Leave policy.
Hours of Work: Develop a separate flex time policy. Flex time is when exempt employees may alter the normal work schedule due to late/early meetings, commitments, etc. It is not a compensatory time policy. The current policy reads as a comp time policy – not a flex time policy. This policy needs clarification. References to 53 hour employees should be changed to shift employees rather than an hour designation.
Overtime: There is a lot of discussion of payroll for exempt employees. Might be better if all of the exempt employee references are placed in the Exempt employee section. Also toward the end of the policy there is discussion of payroll deductions and possible mistakes in processing deductions – this would be better suited either in the compensation section, or the Paydays/Time Reporting section. It does not appear to fit in this section.
Paydays/Time Reporting: Is there a reason the two groups are paid on different Fridays? Why not do payroll all together. It would probably be better for payroll to do it once, then continuous payroll processing. The last paragraph talks about when checks are available – is this still necessary as there is direct deposit. Would move Direct Deposit and this policy closer so that it ties together. The manual should delineate the designated work week, and pay cycle start and end.
Performance and Wages: Merge with the Compensation policy. Since the policies are presented in alphabetical order within each section, the manual has a tendency to be repetitive as the sections are not topic aligned. Moving similar policies together will help employees and supervisors better understand policy, but also less apt to miss a related policy.
Employee Recognition: The department should be applauded for having these programs, assuming they are practiced as well. With that said, many organizations stick to the same type of
McGrath Consulting Group, Inc. Page 286
rewards year after year, and they soon begin to lose their meaning. Thus, it is suggested that the types of awards be omitted from the handbook, and that rewards are changed on a sporadic basis. This keeps them alive and fresh, rather than something that is expected.
Report of Personnel Changes: Insert District Fire Chief/designee. The Fire Chief should not be the sole individual who has access or ensures compliance with this policy. If the department hires a human resources assistant, then this section should be refereed to this title.
Response Time: There is a 6 mile radius for POC personnel, but no residency requirements on full-time personnel. The consultant questions if 6 miles is sufficient, especially looking at the traffic patterns and availability of personnel.
Severance Pay: Would change title to sick leave pay out or retirement benefits. Move the payment of accrued, unused sick leave to the vacation policy. On the sick leave pay out – move to the sick leave section – make it a sub section of sick leave. May want to reference the union contract for pay out provisions for union employees, as well as designate this section who it pertains to. Primary Employment POC: Not sure what this policy is for. In the section above, it talks about how POC cannot work for another municipality as a volunteer firefighter (although the consultant questions this policy as well), so what does this cover? May need further explanation.
Employment Recruitment & Selection: Suggest putting all of the definitions in the Administrative Rules & Procedures subsection to the overall definitions in the beginning of the handbook. This section is a mixture of new employment, and promotions – suggest separating them out so that the manual first discusses new employment; then have a separate promotion section.
The hiring process appears to be in order of what the department does. Suggest just talking about the various pieces, that way, if the department wants to change the order, it still aligns with the employee handbook.
McGrath Consulting Group, Inc. Page 287
Criteria listings: In the hiring and promotion sections, the criteria for points and components are spelled out. Suggest this is an addendum to the handbook so that it can be easily changed. The department should publish the criteria each time there is an opening or testing process so that applicants know ahead of time. But it is difficult to change sections of an employee handbook; whereas, addendum’s are easier to change.
Sick Leave: Suggest transitioning the number of days earned, to hours. Makes it easier to calculate whether it is 40 hours or less. Need to specify in what increments an individual can take sick leave – i.e., 1 hour, 4 hours, etc. The same increments are then translated to FMLA time off. Suggest, sick leave in either 1 or 4 hour increments. The definitions as to when sick leave can be used align with FMLA – provide more basic definitions of what sick leave can be used for and keep the others associated with FMLA.
Since the department is allowing sick leave for items under FMLA, make sure that the policy states that sick leave, FMLA, and MN Parenting Leave all run concurrently.
Leave Donation Policy: Really dislike these policies – however, if it works keep it. Place forms at the end of the manual – not in the body of the policy. Easier to use this way.
Vacation: Same as sick leave, convert the earnings to hours rather than days. Easier to understand with 24 hour employees. No change needed in the earning levels.
Funeral Leave: In the definition of immediate family – what about ‘step’ relationships? Suggest changing to a total amount of hours rather than tours. With the department’s current schedule, if they are on the rotation with either 72 hours or 120 hours – that is a lot of time off.
Parenting Leave & Adoptive Parents: Separate sick leave policy, FMLA, and include MN Parenting leave within FMLA. With all of these policies separated, it is confusing as to what applies when. Need to consolidate a lot of the leave policies – it is rather confusing.
McGrath Consulting Group, Inc. Page 288
Bone Marrow Donation Leave: Can’t say the consultant ever saw this policy before. Rather, wouldn’t it be better to have an organ donation leave – why just bone marrow? Suggest either eliminating from the handbook – could be covered under sick leave or FMLA; or changing the title.
District Phones, Email, and Voice Mail: Need language that all information is subject to open records; and there should be no perceptions of privacy.
Missing Policies: Welcome letter Organization chart History of the department Immigration law compliance Employee classifications Code of Ethics Dating in the workplace Camera phones & other recording devices Social media Bulletin boards Genetic Information Nondiscrimination Act (GINA) Health & Safety –Worker’s compensation; Accidents/Injuries Final paycheck Exit interviews
Summary Overall well written and comprehensive. Suggest moving sections around to better align with the flow of employment: recruitment, compensation, time off, work rules, safety, resignations. Coming similar policies rather than going alphabetically in each major section.
Put all forms in the appendix to the handout rather than in the manual itself. Make sure revision date is in the footer, so employees know which version they are reading.
McGrath Consulting Group, Inc. Page 289
Appendix D: Local 880 Contract Review The following are some suggestions for future contract negotiations. It is understandable that many of the items that may need to be changed was a part of a complex negotiation package sometime in the past. Often we do not look at the contract as a whole again, as negotiations concentrate on specific parts of the contract. Occasionally, taking a step back and looking at it in its totality help find clarity in future language changes.
Article VIII – Layoff & Rehiring: Suggest language that if layoffs were to occur, not only seniority, but also skill set. Thus, a firefighter would be laid off before a firefighter/paramedic.
Article IX – Probationary Period Section 4: A time limit should be set, other than in layoff situations when a person can give up their promotion. A promotion that occurred years before and now the person wants to reduce rank can be extremely disruptive to the organization.
Article XII – Call Pay/Overtime: As discussed in the report – adjust compensation to be comparable with similar fire departments and eliminate multiple overtime rates.
Article XIII –Vacations: No changes to accrual rates; however, change to hours for easier calculations. The department may want to consider a concept called Paid Time Off (PTO) where vacation and some sick leave are combined. Allows more flexibility for employees, and avoids supervisor’s having to ‘checkup’ on employees to see what they are really using it for. Could roll the holidays into the PTO for one accrual rate.
Article XV – Sick Leave: Remove Sections 3, 4 & 5, 11 – funeral leave – as it is covered in the policy manual.
Wage Schedule: As discussed in the Human Resources section of this report; consider conducting a wage survey to not only ensure salaries are comparable to fire departments, but revamping the schedule to reduce the 4% steps; increase the range between ranks, and possibly split out firefighter/ firefighter-medic to create career paths.
Battalion Chief Draft Contract The following are suggestions for the draft battalion chief contract. Many of the same suggestions made in the firefighter contract would apply to this one as well.
McGrath Consulting Group, Inc. Page 290
Article 6 – Insurance: It is significantly easier to establish a percentage on contribution rather than a dollar amount. Some safeguard language could be in that in the event the dollar contribution exceeds a certain point it is capped. But trying to determine dollar amounts each contract is normally problematic for both sides.
Article 7 – Probation: Great language, consider using it in the other contract as well.
Article 16 – Uniforms: Remove from contract and place in either the SOG manual or personnel handbook.
McGrath Consulting Group, Inc. Page 291
Appendix E: St. Louis County PSAP Agencies Served St. Louis County Communication Center Ambulance (20) Fire (76) First Responder (56) Police (25) Babbitt Ambulance 148th Air national guard FD 148th Air national guard FR Babbitt PD Biwabik Ambulance Alborn FD Alborn FR Biwabik Township PD Bois Forte Ambluance Arrowhead FD Arrowhead FR Bois Forte PD Buhl Ambulance Aurora FD Aurora FR Breitung PD Chisholm Ambulance Babbitt FD Babbitt FR Chaplains Cloquet Area Fire District Bearville VFD Bearville FR Chisholm PD Cook Ambulance Biwabik City FD Biwabik City FR Duluth PD Ely Ambulance Biwabik Twp FD Biwabik Twp FR Duluth Township PD Eveleth Ambulance Bois Forte FD Buyck FR Ely PD Floodwood Ambulance Bois Forte Forestry Canosia FR Eveleth PD Gold Cross Ambulance Breitung FD Central Lakes FR Fayal Township PD Hibbing Ambulance Brimson FD Cherry FR Floodwood PD Hoyt Lakes Ambulance Buhl FD Clifton FR Fond du lac PD International Falls Ambulance Buyck FD Colvin FR Hermantown PD Lake County Ambulance Canosia FD Cook FR Hibbing PD Meadowlands Ambulance Central Lakes FD Cotton FR Hoy Lakes PD Orr Ambulance Cherry FD Crane Lake FR Medical Examiners Office Tower Ambulance Chisholm FD Culver FR Nett Lake PD Tower Ambulance Clifton FD Eagles Nest FR Probation Virginia Ambulance Clinton FD East Brevator FR Proctor PD Cloquet Area Fire District Ellsburg FR SLC Initial Intervention Unit Colvin FD Embarrass FR St. Louis County Rescue Squad Cook FD Evergreen FR St. Louis County Sheriff’s Office Cotton FD Fayal FR UMD PD Crane Lake FD Floodwood FR Viginia PD Culver FD Fredenberg FR Duluth FD French FR Eagles Nest FD Gilbert FR East Brevator FD Gnesen FR Ellsburg FD Grand Lake FR Elmer FD Greaney Rauch Silverdale FR Ely FD Greenwood FR Embarrass FD Hermantown FR Eveleth FD Industrial FR Evergreen FD Kinney Great Scott FR Fayal FD Lake Kabetogama FR Floodwood FD Lakeland FR Fredenberg FD Lakewood FR French FD Makinen FR Gilbert FD McDavitt FR Gnesen FD Midway FR Grand Lake FD Morse/Fall Lake FR Greaney Rauch Silverdale FD Mt Iron FR Greenwood FD Normanna FR Hermantown FD North Star FR Hibbing FD Northland FR Hoyt Lakes FD Palo FR Industrial FD Pequaywan Lake FR International Falls FD Pike Sandy Britt FR Kelsey FD Proctor FR Kinney Great Scott FD Rice Lake FR Lake Kabetogama FD Silica FR Lakeland FD Solway FR Lakewood FD Toivola FR Makinen FD Vermillion Lake FR McDavitt FD West Brevator FR Mckinley FD Meadowlands FD Morse/Fall Lake FD Mt Iron FD Normanna FD North Star FD Northland FD Orr FD Palo FD Pequaywan Lake FD Pike Sandy Britt FD Proctor FD Rice Lake FD Silica FD Solway FD Toivola FD Tower FD Vermillion Lake FD Virginia FD West Brevator FD
McGrath Consulting Group, Inc. Page 292
Appendix F: NFPA 1901 Required Apparatus Equipment
The following list of equipment needed includes standards by NFPA 1901 and ISO.
Engine Company Equipment Needed
Booster tank 300 gal. 1/10 gal. 30 or larger Hose: 15' soft-suction or 20' hard-suction hose 1 12 12 1½" , 1¾", or 2" hose carried 400’ 3/50 24
Master stream appliance (1,000 gpm) 1 100 100 Nozzles: 2½" playpipe with shutoff and 1", 1⅛", and 1¼" tips 1 20 20 2½" combination spray with shutoff 1 30 30 1½" or 1¾" combination spray with shutoff 2 10 20 SCBA (30-minute minimum) 4 24 96 Extra cylinders (carried) 4 6 24 Salvage covers (minimum size of 12’ x 14') 2 2 4 Electric handlights 2 2 4 Hose clamp 1 4 4 Hydrant hose gate (2½") 1 4 4 Gated wye (2½" x 1½" x 1½" ) 1 4 4 Radio: Mounted 1 32 32 Portable 1 16 16 Ladders: 12' to 16' roof 1 10 10 24' extension or larger 1 16 16 Annual tests: Pumper (see Table 512B) 1 100 100 Hose (see Table 512C) 1 50 50 Total 600
______Pumper Service Test Program
Average Interval between 3 Most Recent Tests Maximum Points Credit 1 year 100 2 years 75 3 years 50 4 years 25 5 years or more 0
The Pumper Service Test Program shall be in accordance with the general criteria of
McGrath Consulting Group, Inc. Page 293
NFPA Standard 1911: Standard for the Inspection, Maintenance, Testing, and Retirement of In- Service Automotive Fire Apparatus.
Hose Service Test Program
Average Interval between 3 Most Recent Tests Maximum Points Credit 1 year 50 2 years 37 3 years 25 4 years 12 5 years or more 0
The Hose Service Test Program shall be in accordance with the general criteria of NFPA 1962, Standard for the Inspection, Care, and Use of Fire Hose, Couplings, and Nozzles and the Service Testing of Fire Hose.
When the hose test frequency varies, proportion the credit based upon the percent of all hose tested for each frequency.
Note: If partial records of tests exist, reduce the credit for testing by 25% for Tables 512B and/or 512C; if no records of tests exist, reduce the credit by 100% for Tables 512B and/or 512C as applicable.
Service Company Equipment Needed Points Equipment Needed Credit/Unit Total Points SCBA (30-minute minimum) 4 24 96 Extra cylinders (carried) 4 6 24 Salvage covers (minimum size of 12' x 14') 6 2 12 Electric generator (3,000 watt) 1 25 25 Portable floodlight (500 watt) 3 4 12 Smoke ejector (5,000 cfm) 1 20 20 Portable thermal cutting unit 1 20 20 Saw – power (chain or heavy-duty rotary type) 1 20 20 Electric hand lights 4 2 8 Pike pole (plaster hook): 3' or 4' 2 2 4 6' or longer 4 2 8 Radio: Mounted 1 32 32 Portable 1 16 16 Ladder:
McGrath Consulting Group, Inc. Page 294
24' extension or longer 1 25 25 16' roof or longer 1 25 25 10' attic or longer 1 4 4 14' combination or longer 1 5 5 Total 356
Additional Equipment for a Ladder Company Points Equipment Needed Credit/Unit Total Points Ladder: 16' or longer roof 1 25 25 35' or longer extension 1 25 25 Elevated stream device* 1 100 100 Large spray nozzle (1,000 gpm) 1 16 16 Aerial ladder/elevating platform* 1 200 200 Annual tests (aerial/platform, see Table 542C) 1 50 50 Total 416
NFPA 1901 Equipment for Pumper/Engine 2009 edition: Sections 5.8.2, 5.8.3 One Roof ladder One extension ladder One folding ladder 800 feet of 21/2 inch hose or larger fire hose 400 feet of 12/4 or 2 inch fire hose One hand line nozzle 200 gpm minimum Two hand line nozzles 95 gpm minimum One play pipe with shutoff and the following tips 1”, 11/8”, and 11/4”. One 6lb. flathead axe in a bracket fastened to apparatus One 6 lb. Pick headed axe mounted to apparatus One 6 foot pike pole mounted on apparatus One 8 foot or longer pike pole mounted on apparatus 2 Portable hand lights Mounted One approved portable fire extinguisher with a minimum of 80B:C mounted on apparatus One 21/2 gallon water extinguisher mounted on apparatus. One Self-contained breathing apparatus that compiles with NFPA 1981 for each assigned seat position but not fewer than 4 mounted on apparatus or in approved containers. One spare cylinder for each SCBA carried on the apparatus mounted. One first aid kit. 4 combination spanner wrenches mounted. 2 fire hydrant wrenches mounted to apparatus.
McGrath Consulting Group, Inc. Page 295
One double female 21/2” adapter with national hose threads mounted. One double male 21/2” adapter with national hose threads mounted. One rubber mallet for use on suction hose mounted. Two salvage covers minimum size 12’ X 14 ‘. 2 or more wheel chocks mounted in accessible locations, together they must hold the apparatus when loaded to its GVWR or GCWR on hard surface with a 20% grade, transmission in neutral, and the parking brake released. One traffic vest for each position that comply with ANSI/ISEA 207, standard for high- visibility public safety vests. 5 fluorescent orange traffic cones not less than 28” in height with a 6” whit reflective band and a 2 inch reflective band. 5 illuminated warning devices unless the 5 cones are illuminated. One external defibrillator (AED). An extra double male and female to fit Apparatus supply hose.
NFPA 1901 Equipment for Aerial Apparatus 2009 edition: Sections 8.7, 8.8.2 A minimum of 115 feet of ground ladders. Minimum types of ladders to include one folding ladder, two straight ladders with folding roof hooks, two extension ladders. Ladders to be mounted. Ground ladders shall meet NFPA 1931 Stepladders and multi-purpose ladders to meet the requirements of ANSI A14.2 or ANSI A14.5 with a rating of 1A or 1AA. Two 6lb. Flat headed axes mounted. Three pick headed axes mounted. Four Pike Poles Mounted. 2 three foot to 4 foot plaster hooks with D-handles mounted. Two crowbars mounted. Two claw tools mounted. Two 12 lb. sledge hammers mounted. Four portable hand lights mounted. One approved dry chemical extinguisher with minimum 80-BC rating mounted. One 21/2 gallon water extinguisher mounted. One SCBA complying with NFPA 1981 for each assigned position, but no less than 4 masks Mounted. One spare SCBA air bottle for each mask carried, stored appropriately. One first aid kit. Six salvage covers, minimum of 12 feet by 18 feet. Four combination spanner wrenches mounted.
McGrath Consulting Group, Inc. Page 296
Two scoop shovels, mounted. One pair bolt cutters at least 24 inches, mounted. Four ladder belts meeting requirements of NFPA 1983. One 150 foot rope meeting requirements of NFPA 1983. Two 150 foot utility ropes having a breaking strength of at least 5,000 lbs. One tool box with at least the following--- 1 hacksaw with at least 3 blades, 1` keyhole saw, 1- 12 inch pipe wrench, 1-24inch pipe wrench, 1 ballpeen hammer, 1 pair tin snips, 1 pair pliers, 1 pair lineman’s pliers, Assorted screw drivers, assorted adjustable wrenches, assorted combination wrenches. Two or more wheel chocks mounted accessibly that together will hold the apparatus, when loaded to GVWR or GCWR on hard surface with a 20% grade, transmission in neutral, and parking brake released. One traffic vest for each seating position that complies with ANSI/ISEA 207. Five fluorescent cones not less than 28 inches with a six inch white reflective band and a 2 inch reflective band. Five illuminated warning devises unless the cones are illuminated. One automatic external defibrillator (AED). If the aerial has a pump then the following also applies. One 21/2” double female with national hose threads, Mounted—One double male with NH threads mounted—One rubber mallet for use on suction hose—Two hydrant wrenches mounted. If Supply hose does not use sexless coupling than an additional double female and double female must be carried in the size with the supply hose carried.
NFPA 1901 Equipment for Tender Apparatus 2009 edition: Section 7.7.31 Water tank must be 1,000 gallons or more. Equipment storage must have 20 cubic feet of enclosed storage weather resistant compartments. If there is a suction hose must have a suction strainer. 200 feet of 21/2 inch hose or larger. 400Ft. of 11/2”, 13/4” or 2” fire hose Two hand line nozzles of 95 GPM or greater. One 6LB Flathead axe or Pick head axe mounted. One 6 foot or longer pike pole or plaster hook mounted. 2 portable hand lights mounted. One approved Dry Chemical fire extinguisher with a minimum 80-B:C rating mounted. One 21/2 gallon water extinguisher mounted. One SCBA, that complies with NFPA 1981, for each position, but not less than two masks mounted or approved containers.
McGrath Consulting Group, Inc. Page 297
One spare SCBA air bottle for each mask carried. One first aid kit. Two combination spanner wrenches, mounted. One hydrant wrench mounted. One double female adapter sized to fit 21/2” or larger hose. One double male adapter sized to fit 21/2” fire hose or larger. Two or more wheel chocks mounted accessible locations that hold apparatus when loaded to GVWR or GCWR, on hard surface with a 20% incline, transmission in neutral, and parking brake released. One traffic vest for each position on apparatus that complies with ANSI/ISEA 207. Five Fluorescent traffic cones not less than 28”, each with a 6in. white band and a 2 in. white band. Five illuminated warning devices if the cones are not illuminated. One automatic External defibrillator (AED)
\\
McGrath Consulting Group, Inc. Page 298