A STUDY TOWARDS THE IMPLEMENTATION OF A FIRE SERVICE OPERATIONAL STRUCTURE IN THE EDEN DISTRICT MUNICIPAL AREA

By

Zanda van Rooyen

Submitted in partial fulfilment of the requirements for the degree of Magister in Business Administration at the NMMU Business School

Research supervisor: Prof JJ Pieterse

November 2005

DECLARATION

“I, Zanda van Rooyen, ID No 6503190043080 hereby declare that: - the work in this research paper is my own original work; - all sources used or referred to have been documented and recognised; - and this research paper has not been previously submitted in full or partial fulfilment of the requirements for an equivalent of higher qualification at any other recognised education institution.”

Signed ………………………

Date:………………………

ii

ABSTRACT

The Eden District Municipality (EDM) is a local authority whose area of responsibility covers the Garden Route and also includes the Klein Karoo. The boundaries are from Storms River in the east, to Swellendam in the west and the Swartberg Mountains in the north. The EDM covers a very big area with seven big municipalities to consider and work with. Five of the municipalities, Langeberg, Mossel Bay, Knysna, George and Oudtshoorn have their own fire fighting services.

The EDM fire fighting serves mainly the rural area. This is very costly due to the large distance required to travel to a fire, whereas the local municipalities are operating in their own towns. The new municipal boundaries include the rural areas, but the municipalities cannot service the rural areas because they do not as yet charge rates in the rural areas and therefore there is no revenue for the fire fighting service. They operate on the basis of verbal working agreements that make coordination of fire fighting very difficult.

The fire fighting functions of the EDM as a category C municipality and the local municipalities as category B municipalities have been specified in the Municipal Structure Act. The allocation (division) of functions and powers relating to fire fighting service between the district municipality and local municipalities as determined by the Municipal Structure Act (Act 117 of 1998) has not been done. Due to the lack of invested capital, the resources are in a bad state. Some of the services have no capacity to attend to chemical fires or hazardous substance emergencies.

Internationally, private fire fighting services can be contracted by government departments. These private fire fighting services are very large and the areas that they serve are extensive. These services have their own personnel structures functioning in an organisational structure that serves them well. These private services are very cost-effective and can therefore offer reasonable rates.

iii Bases on an investigation of various fire fighting services and different structures, the proposed structure for fire fighting in the EDM area will be a combination of structures. The diverse nature of the area will make the location of a sectoral structure and extension of its capacity difficult, and several factors that will impact on an new structure must be kept in mind. If all works well it will be relatively easy to achieve the five operations performance objectives envisaged for restructuring namely quality, speed, dependability, flexibility and cost.

iv

ACKNOWLEDGEMENTS

I hereby wish to express my gratitude to the following individuals who contributed to the successful and timeous completion of this dissertation

- To Peet van Rooyen for his support; - To the George study group, namely Marius Neser Trix Holtzhausen For their support during our years of studying; - To fire fighters Andrè Tomlinson and Deon van Wyk who shared with me their passion for fire fighting; - Eden District Municipality, for making information available. - To God, my pillar.

v DEDICATION

This dissertation is dedicated to my family: Tom, Ina, Glenda, Peet, Elzaan, Thomas and Diane.

vi TABLE OF CONTENTS

DECLARATION ii

ABSTRACT iii

ACKNOWLEDGEMENTS iii

DEDICATION vi

CHAPTER 1 1

INTRODUCTION, PROBLEM STATEMENT AND OUTLINE OF RESEARCH

PROJECT 1

1.1 INTRODUCTION 1

1.2 MAIN PROBLEM 2

1.3 SUB-PROBLEMS 2

1.4 DELIMITATION OF THE RESEARCH 3

1.4.1 Demarcation of Organisations to be researched 3

1.4.2 Geographic demarcation 3

1.5 DEFINITIONS OF KEY TERMS 3

1.5.1 The Fire Fighting Service 3

1.5.2 Demarcation 4

1.5.3 Benchmarking 4

1.5.4 Unique features of an organisation 4

1.5.5 Efficiency 4

1.5.6 Configuration 5

vii 1.5.7 Stakeholders 5

1.5.8 The five performance objectives 5

1.6 IMPORTANCE OF THE RESEARCH 6

1.7 RESEARCH DESIGN 7

1.7.1 Literature Study 7

1.7.2 Empirical study 7

1.7.2.1 Measuring Instruments 7

1.7.2.2 Sample 8

1.7.2.3 Statistical analysis of data 8

1.8 DATABASES 8

1.9 LITERATURE OVERVIEW 8

1.10 OUTLINE OF CHAPTERS 10

CHAPTER 2 11

ORGANISATIONAL STRUCTURES AND LOCATION OF CAPACITY 11

2.1 INTRODUCTION 11

2.2 ORGANISATION CHARTS 13

2.3 DIFFERENT TYPES OF ORGANISATIONS 15

2.3.1 BUREAUCRATIC ORGANISATIONAL STRUCTURE 16

2.3.2 Flat Organization Structure 17

2.3.3 Network Organisation 18

2.3.4 The Virtual Organisation 20

2.3.5 Geographic Organisation 22

viii 2.4 THE LOCATION OF CAPACITY 24

2.5 THE FIVE PERFORMANCE OBJECTIVES 28

2.5.1 The Quality Objective 30

2.5.2. The Speed Objective 31

2.5.3. The Dependability Objective 32

2.5.4 The Flexibility Objective 32

2.5.5 The Cost Objective 33

2.6 SUMMARY 34

CHAPTER 3 35

BENCHMARKING 35

3.1 INTRODUCTION 35

3.2 RURAL/METRO CORPORATION 36

3.3 ZULULAND FIRE PROTECTION SERVICES 39

3.4 SACRAMENTO METROPOLITAN FIRE DISTRICT (METRO FIRE) 46

3.5 METROPOLITAN POLICE DEPARTMENT 51

3.6 SUMMARY 60

CHAPTER 4 61

DESIGN OF THE EMPIRICAL STUDY 61

ix 4.1 INTRODUCTION 61

4.2 RESEARCH DESIGN 61

4.3 DESIGN AND STRUCTURE OF THE QUESTIONNAIRE 62

4.3.1 Administration of the questionnaire 65

4.3.2 Variables in questionnaire 66

4.4 SUMMARY 67

CHAPTER 5 68

RESULTS AND ANALYSIS OF THE EMPIRICAL STUDY 68

5.1 INTRODUCTION 68

5.2 ANALYSIS OF EMERGENCY CALLS ATTENDED 68

5.3 ANALYSIS OF QUANTITY OF FIRE STATIONS, SUB-STATIONS

AND CONTROL CENTRES 71

5.4 ANALYSIS OF FIRE SERVICES EXPENDITURE 72

5.5 ANALYSIS OF MANPOWER 73

5.6 CONCLUSION 75

CHAPTER 6 76

RISK PROFILE AND CAPACITY ANALYSIS 76

6.1 INTRODUCTION 76

6.2 CLIMATE 77

x 6.3 GEOPHYSICAL PROFILE 78

6.3.1 Coastal Platform 78

6.3.2 Upper Plateaux 78

6.3.3 Mountains 79

6.3.4 Vegetation 79

6.4 INFRASTRUCTURE 81

6.5 ROADS AND TRANSPORTATION 84

6.6 RAIL TRANSPORT 86

6.7 AIRPORTS 86

6.8 FUNCTIONAL ASSESSMENT OF THE FIRE SERVICES AND

GEOGRAPHICAL SERVICE PROFILE 87

6.9 CONCLUSION 92

CHAPTER 7 94

SUMMARY AND CONCLUSION 94

7.1 INTRODUCTION 94

7.2 ORGANISATIONAL STRUCTURE 95

7.3 THE LOCATION OF CAPACITY 101

7.4 THE FIVE PERFORMANCE OBJECTIVES 103

7.4.1 Is the fire fighting service doing things right? 104

7.4.2 Is the fire fighting service first on a scene? 107

7.4.3 Is the fire fighting service doing things on time? 107

xi 7.4.4 Is the fire fighting service making changes where necessary? 107

7.4.5 Is the fire fighting service doing their jobs cost effectively? 108

7.5 SUMMARY 110

REFERENCES 112

ANNEXURE A - QUESTIONNAIRE 117

xii TABLE OF FIGURES AND TABLES

FIGURE 2.1 - EDM FIRE DEPARTMENT ...... 12 FIGURE 2.2 THE RELATIONSHIP BETWEEN STRATEGIC CHOICE AND THE ORGANISATIONAL STRUCTURE ...... 14 FIGURE 2.3 BUREAUCRATIC ORGANISATION STRUCTURE...... 17 FIGURE 2.4 FLAT ORGANISATION ...... 18 FIGURE 2.5 A DYNAMIC NETWORK ...... 19 FIGURE 2.6: NEST OF VIRTUALNESS ...... 21 FIGURE 2.7 THE GEOGRAPHIC ORGANISATION STRUCTURE...... 23 FIGURE 2.8 - THE ADVANTAGES AND DISADVANTAGES OF A GEOGRAPHIC STRUCTURE...... 24 FIGURE 2.9 - SUPPLY AND DEMAND: SIDE-FACTORS FOR LOCATION DECISIONS...... 26 FIGURE 2.10 - PERFORMANCE OBJECTIVES ...... 30 FIGURE 2.11 – QUALITY MEANS DIFFERENT THINGS IN DIFFERENT OPERATIONS...... 31 FIGURE 3.1 - CORPORATE ORGANISATIONAL CHART ...... 38 FIGURE 3.2 - REGIONAL ORGANISATIONAL CHART...... 39 TABLE 3.1 - ZULULAND COASTAL FIRES AND LOSSES ...... 42 TABLE 3.2 - ZULULAND INLAND FIRES AND LOSSES ...... 43 FIGURE 3.3 - ELEMENTS OF THE FIREHAWK SYSTEM ...... 45 TABLE 3.3 - FACTS ABOUT SACRAMENTO METROPOLITAN FIRE DISTRICTS...... 48 FIGURE 3.4 - SACRAMENTO METROPOLITAN FIRE DISTRICT ...... 51 FIGURE 3.5 – PROPOSED NEW STRUCTURE OF METROPOLITAN POLICE DEPARTMENT ...... 54 FIGURE 3.6 – PROPOSED ROLE STRUCTURE OF METROPOLITAN POLICE DEPARTMENT ...... 57 TABLE 4.1: An Extract from the Questionnaire...... 64 TABLE 4.2: An Extract from the Questionnaire (continued)...... 64 TABLE 4.3: An Extract from the Questionnaire (continued)...... 65 TABLE 4.4: An Extract from the Questionnaire (continued)...... 65 TABLE 5.1 – EMERGENCY CALLS ATTENDED ANNUALLY ...... 69 TABLE 5.2 – FIRE STATIONS, SUB-STATIONS AND CONTROL ROOMS....71

xiii TABLE 5.3 – MUNICIPAL TOTAL OPERATING EXPENDITURE AND FIRE SERVICES OPERATING EXPENDITURE ...... 72 TABLE 5.4 – EDM OPERATIONAL MANPOWER PROFILE ...... 74 TABLE 6.1 – REGIONAL VEGETATION FEATURES...... 80 TABLE 6.2 – THE EDM DEMOGRAPHICS ...... 81 FIGURE 6.1 - MAP OF THE EDM AREA………………………………………….83 TABLE 6.3 - MAIN URBAN CENTRES AND SETTLEMENTS IN THE EDM....84 TABLE 6.4 - TOWN DISTRIBUTION AND TRAVEL DISTANCES IN THE EDM ...... 85 TABLE 6.5 – ASSESSMENT OF FUNCTIONAL EFFECTIVENESS ...... 87 TABLE 6.6 – RESOURCE ASSESSMENT FOR STRUCTURE FIRES...... 88 TABLE 6.7 – MAIN FIRE FIGHTING RESOURCES IN THE EDM ...... 90 TABLE 7.1 - TOTAL MANPOWER STATISTICS...... 96 TABLE 7.2 - IDENTIFICATION OF THE THREE GEOGRAPHICAL AREAS ...96 TABLE 7.3 - DEMOGRAPHICS OF EDM DIVIDED INTO THE THREE AREAS ...... 97 FIGURE 7.1 - GEOGRAPHIC ORGANISATIONAL STRUCTURE OF EDM AREA ...... 98 FIGURE 7.2 – REGIONAL COMMANDER COASTAL PLATEAUX A ...... 98 TABLE 7.4 – SUPPLY-SIDE FACTORS AND THEIR IMPLICATIONS ...... 102 TABLE 7.5 – DEMAND-SIDE FACTORS AND THEIR IMPLICATIONS ...... 103 TABLE 7.6 – MAIN FIRE FIGHTING RESOURCES IN THE EDM ...... 105

xiv

CHAPTER 1

INTRODUCTION, PROBLEM STATEMENT AND OUTLINE OF RESEARCH PROJECT

1.1 INTRODUCTION

Perhaps the greatest change evident in the way that public services will look from a perspective of twenty years hence is that there is likely to be a much more logical and end-user focused approach to the way in which organisations operate. The current model, which typically sees a split of provision and responsibility across national, regional and sometimes local boundaries, is going to be challenged, possibly to the point of extinction (Milner, 2000:177).

Efficient and effective public services are an essential part of a healthy democratic society. Many local authorities recognise this and successfully achieve high standards, often in difficult circumstances. A fire service forms part of all the public services that a local authority can provide. The importance of a fire service is realised when disaster strikes. That is when a municipality must demonstrate what resources are available to the fire services and what can be achieved within the resources that are available (Johnson & Scholes; 2002:31).

Obeng (1997:198) states that you can find new ways of delivering old needs, as one already knows who the customers are, where they are and what colour underpants they wear. It is all out there for the taking, but the real barrier is in your imagination. To be able to go virtual you will need to redraw your mental maps. The opportunity is there but to convince people to redraw their mental maps will be a large task.

Management formulates strategic goals and objectives which the total organisation will seek to obtain. Swanepoel, Erasmus, Van Wyk and Schenk (2000:87) define three different possible strategies, namely Corporate strategy determines what types or areas of business it would be best to get involved in. Business strategy on the other hand, is the decisions and practices concerned 1 with how to complete and achieve success in these particular industries or sectors. Functional strategy refers to the strategies relating to the various functional areas such as marketing, public relations, operations and human resources.

Structuring the flow of work also involves decisions about how the organisation as a whole is to be structured. There are many ways to structure an organisation. Typically, the pyramid-shaped structure (bureaucratic) consists of a hierarchy of many different levels. Variables that influence design of a structure are as follows: configuration, formalisation, standardisation, specialisation and centralisation. The explosive growth in computing power and networks, including the Internet, is turning organisations into networked enterprises. Information can be distributed within and beyond the organisation. This capability can be used to redesign and reshape organisations, transforming their structure, scope of operations, reporting and control mechanisms, work practices, works flows, products and services. Information systems can reduce the number of levels in an organisation, giving a flatter organisational structure that will provide managers with information to supervise large numbers of workers and giving lower-level employees more decision- making authority. Every person’s knowledge is relatively unique.

1.2 MAIN PROBLEM The main problem that was researched in this project is as follows:

How can an effective fire service operational structure be implemented in the Eden District Municipality Area?

1.3 SUB-PROBLEMS The main problem was resolved by addressing the following sub-problems: • How do regional fire fighting services ideally operate? • What viewpoints do knowledgeable people have about an operational structure for a fire fighting service does it operate and how? • How can the current fire fighting services be improved?

2 • What is the risk profile and capacity of current fire fighting services in the Eden District Municipality (EDM) area?

1.4 DELIMITATION OF THE RESEARCH 1.4 .1 Demarcation of Organisations to be researched The scope of the research was limited to the Southern Cape and Klein Karoo region.

1.4.2 Geographic demarcation The Eden District Municipality (EDM) covers the Garden Route area and also includes the Klein Karoo. The boundaries are from Storms River in the east to Swellendam in the west and the Swartberg Mountains in the north. The EDM covers a very big area with seven big municipalities to consider and work with. Communication is primarily conducted via a multitude of meetings.

1.5 DEFINITIONS OF KEY TERMS To ensure common understanding, certain key terms used throughout the study are defined below.

1.5.1 The Fire Fighting Service Each of the seven municipalities has a fire department. The organisational structures of each fire department differ from one another.

Apart from the municipalities there are other groups that also maintain some kind of fire fighting service. They are: • Working For Fire, • Nature conservation, • Forestry, • Farmers, • PetroSA..

3 1.5.2 Demarcation During July 1998 wall-to-wall municipalities were created with the demarcation of the municipalities as per Local Government Municipal Demarcation Act [No. 27 of 1998]. Rural areas were thereby included in greater municipal boundary. Previously the rural areas had been serviced by the District Councils.

1.5.3 Benchmarking Laudon and Laudon (2002:315) define benchmarking as measuring performance against external industry standards, i.e. standards set by other companies, or internally developed high standards, or some combination of the two.

1.5.4 Unique features of an organisation No two organisations are identical, although all organisations have common characteristics. Organisations differ in structure or shape, goals, constituencies, leadership styles, tasks and surrounding environments. Organisations are open to and dependent on the social and physical environment that surrounds them, and they have a reciprocal relationship with the environment. Organisations must respond to legislative and other requirements imposed by the government and they can form alliances with others to influence the political process. New government regulations put pressure on any organisation’s culture, politics and people. Most organisations do not cope with large environmental shifts and fail to adapt to a rapidly changing environment and a lack of resources (Laudon & Laudon; 2002:72).

1.5.5 Efficiency According to Robbins (1998:23), efficiency is the ratio of effective output to the input required to achieve it. When a hospital for example meets the needs of its clientele successfully, it is effective, but it is efficient when the hospital can do so at a low cost.

Inputs can be identified as labour, land and capital. Efficiency is achieved by minimizing input and maximizing productive outputs (Hellriegel, Jackson, Slocum, Staude & Associates; 2001:130).

4 1.5.6 Configuration An organisation’s configuration consists of the structures, processes, relationships and boundaries through which the organisation operates (Johnson & Scholes; 2002:398).

1.5.7 Stakeholders Useful classifications of the performance objectives which any operation might pursue can be gained by identifying the operation stakeholders. Slack, Chambers and Johnston (2001:43) state that stakeholders are the people and groups of people who have an interest in the operation and who may be influenced or can influence the operation’s activities.

Stakeholders can also be identified as internal or external. Internal stakeholders are identified as the operation’s employees and the external stakeholders are the society or community groups and the company’s shareholders. External stakeholders can have a direct commercial relationship with the company by means of the company’s value chain.

In government departments, who are non-profit organisations, stakeholders can overlap; they can be “shareholders” of a public service agency as well as their main customer.

1.5.8 The five performance objectives In order to be more competitive, there are objectives that will contribute to achieve the goals. The five basic performance objectives can be applied to all types of operations. The following five objectives can be applied to achieve greater competitiveness: • To do things right → quality objective, • To do things first → speed objective, • To do things on time → dependability, • To make changes where necessary → flexibility, • To do things cheaply → cost objective (Slack et al., 2001:49).

5 1.6 IMPORTANCE OF THE RESEARCH The production of goods and the delivery of services at market-related costs, while still allowing for a return to the organisation or a non-for-profit organisation, give good value for money to the taxpayers or whoever is funding the operation. Cost is the major operation objective. The lower the cost of producing services or goods, the lower the price to customers.

An operation will spend its money on staff, facilities, technology, equipment cost and material costs. Comparing the cost structure of different operations is not always straightforward and depends on how costs are categorized. Costs can be categorized as fixed costs and variable costs. Cost is affected by the other performance objectives: • High-quality operations do not waste time or effort having to re-do things, • Fast operations reduce the level of in-process inventory between micro operations. • Organised operations reduce administrative overheads. • Dependable operations do not spring any unwelcome surprises on their internal customers. • Flexible operations adapt to changing circumstances quickly and without disrupting the rest of the operation. Flexible micro operations can also change over between tasks quickly and without wasting time and capacity.

The cost factor is only one of the reasons why it was important to do this research. The current situation in the EDM is that the seven big municipalities have a fully functional fire fighting service that only services areas within the old municipal boundaries, while the District Council is still responsible for the rural areas. This situation is due to the functions relating to the Municipal Structures Amendment Act (Act 33 of 2000) that are not clearly divided between the municipalities and the District Councils. In the meantime the taxpayers are paying for a very expensive fire fighting service, or getting no service at all.

The geography and climate in the region require various fire fighting management strategies. Each area has to cope with a different fire hazard in the various seasons. There are forests, mountains, the Karoo and the south

6 western districts. Resources must be managed in such a way that all the different situations are catered for, and managed as cost effectively as possible.

1.7 RESEARCH DESIGN In this section the methodology followed in the research project is described. In conducting the research the subsequent procedure was espoused to solve the main problem as well as the sub-problems.

1.7.1 Literature Study A literature study was conducted to identify key factors leading to successes in strategic fire fighting decisions. It was also necessary to determine which would be more viable: the larger, regional fire fighting service, or whether it would be more beneficial to retain the status quo. These key factors were compared to the current situation as well as the creation of a regional fire fighting service.

Literature was obtained from the libraries of the Nelson Mandela Metropolitan University, Municipalities in Eden District Municipal area and the Internet.

1.7.2 Empirical study The empirical study consists of:

1.7.2.1 Measuring Instruments a.) Case study – Data from case studies on the functioning of different existing fire fighting services were collected and analysed. The aim of investigating these case studies, as well as the subsequent interviews, was to quantify what knowledgeable people believed are the requirements or strategies for a regional fire fighting service, and to obtain an inventory of equipment and skills. b.) Interviews - Personal as well as telephonic interviews were conducted with selected employees of stakeholders. The main objective of the interviews was to obtain information regarding the status of the fire fighting services in the EDM area. A questionnaire was completed by the interviewees.

7 1.7.2.2 Sample The sample was restricted to the seven big municipalities in the Eden District municipal area. These seven municipalities are: • Langeberg, • Mosselbay, • George, • Knysna, • Bitou, • Demarcation Area (DMA), • Oudtshoorn.

1.7.2.3 Statistical analysis of data Analysis of the data was done by following the following steps: • Organisation of detail about the case, • Categorisation of data, • Interpretation of single instances, • Identification of patterns, and • Synthesis and generalization (Leedy, Ormrod; 2001:150).

1.8 DATABASES Research publications and relevant statistical data of governmental agencies, municipals and other stakeholders were accessed to obtain information on trends in fire fighting structures. These trends were used as a guideline for the strategic development process.

1.9 LITERATURE OVERVIEW In an attempt to resolve the main and sub-problems, a literature study was undertaken. The sub-problems were matched to some literature, although sub- sections of the sub-problems had to be researched as well.

What method(s) could be used to analyse the ideal fire fighting service? To address this sub-problem, the current situation was analysed by means of a case study and interviews. Kreitner, Kinicki and Buelens (2002:24) define a case study as an in-depth study of a single person, group or organisation. The

8 methods of data collection of case studies are observations, interviews and appropriate written documents and/or audiovisual material (Leedy; 2001:157)

Clark (1998:28) defines knowledge as the understanding of why and how something works, for example, how and why the customer reaches a decision to purchase a product or to hire a service. Knowledge is generally related to the level of education of a person. Although it is something that has to be taught, it does not necessarily have to be taught in schools or universities, it can also be acquired by field training. It is important to note that knowledge does not have to be of an academic nature.

Brewster, Dowling, Grobler, Holland and Wärnich (2000:136) classify business knowledge into various categories: • Advantaged knowledge is knowledge that does or can provide competitive advantage for the company. • Base knowledge forms an integral part of the business, e.g. best practices. This provides only a short-term advantage. • Trivial knowledge has no major impact on the company.

The dilemma for organisations is how to turn individual knowledge into a corporate resource and asset. Knowledge creates the capacity to act and is an individual human activity. It is created at the moment of interpretation and resides in the heads of individuals, staff, customers, suppliers and competitors. Every person’s knowledge is relatively unique.

How to improve the current situation? Strategic management is the process of examining both the present and future environments, formulating the organisation’s objectives and making, implementing and controlling decisions focused on achieving these objectives in the present and future environments (Swanepoel, Erasmus, Van Wyk & Schenk; 2000:202).

Perhaps the greatest change evident in the way that public services will look from a perspective of twenty years hence, is that there is likely to be a much more logical and end-user focused approach to the way in which organisations 9 operate. The current model, which typically sees a split of provision and responsibility across national, regional and sometimes local boundaries, is going to be challenged, possibly to the point of extinction (Milner; 2000:177).

What influence does the geographic demarcation have on the fire fighting service? Historic data such as rainfall patterns, temperatures during different seasons and link to a fire call out, the number of call outs and the kind of call outs as well as the duration of the service rendering and the location of the call out are important. This survey was done in both municipal and rural areas.

1.10 OUTLINE OF CHAPTERS The study is presented as follows: • Chapter 1 - The introduction to and overview of the research thesis. • Chapter 2 - Organisational structure and location of capacity. • Chapter 3 - Benchmarking • Chapter 4 - Design of the empirical study • Chapter 5 - Results and analysis of the empirical study • Chapter 6 - Risk profile and capacity analysis • Chapter 7 - Summary and conclusion. • References - List of references • Annexure - Questionnaire

10 CHAPTER 2

ORGANISATIONAL STRUCTURES AND LOCATION OF CAPACITY

2.1 INTRODUCTION “Come and visit the Garden Route, it is a taste of Eden and we all are crazy about Eden.” These words of former Mayor, Mr. A Lamont, best describe the area. The Eden District Municipality (EDM), situated on the Garden Route, includes the Klein Karoo. The boundaries are from Storms River in the east to Swellendam in the west and the Swartberg Mountains in the north.

The EDM is a local authority. The corporate strategy is to maximise income and the business strategy is to take up all the functions being given the authority to by law for example, to supply water, sewerage and fire fighting, tourism and health services.

The organisational structure of EDM is the typical pyramid-shape. Management comprises the top three levels of the organisational structure and the number of levels downward depends on the function of the different departments. Even the merge with Klein Karoo District Municipality did not alter the structure. Specialisation is the only factor that distinguishes one department from the other, for example Finance and the Fire Department.

The EDM consists of five departments, namely Finance, Corporative Services, Community Services, Roads and Economic Development and Tourism. The Fire Department is part of the Community Services Department. The fire department is a necessity, but unfortunately this service is expensive. A current organisational structure of the EDM fire department is presented in figure 2.1.

11 FIGURE 2.1 - EDM FIRE DEPARTMENT

FIRE CHIEF

STATION OFFICER ADMINISTRATION CLERK

SHIFT A SHIFT B SHIFT C • Shift Leader • Shift Leader • Shift Leader • Fireman • Fireman • Fireman • Fireman • Fireman • Fireman

Source: F.Goosen, Acting Human Resources Manager, EDM, George, (personal communication, November 2003).

This chapter addresses the following sub-problem: How does a regional fire fighting service ideally operate? This problem will be addressed by looking at the strategic advantages and disadvantages of different organisational structures and also matching organisational structure to strategy. The question is where to locate the fire fighting service to operate efficiently and what the specific performance objectives are against which its success can be measured. Thomson stated that the strategy-implementing challenge is to create a series of tight fits between strategy and the organisation’s competencies, capabilities and structure (Thomson & Strickland; 1999:307).

The three major organisation-building actions are as follows: • Filling key positions with able people, • Building the core competencies, resource strengths and organisational capabilities needed to perform its value chain activities proficiently, • Structuring the internal work effort and melding it with the collaborative efforts of strategic allies (Thomson & Strickland; 1999:307).

All organisation structures have strategic advantages and disadvantages. New strategic priorities like short design-to-market cycles, multi version production and personalised customer services are promoting a revolution in organisation 12 building featuring lean, flat, horizontal structures that are responsive and innovative (Thomson & Strickland;1999:309).

Advances in information technology have made it possible for organisations to focus on their core competencies. However traditional hierarchical design with its top-down command structure is not totally obsolete. It is still necessary to cope with routine functions, although it cannot be expected to deal with strategic issues (Schultz, Bagraim, Potgieter, Viedge & Werner, 2003:236).

2.2 ORGANISATION CHARTS Organisation theorists have many definitions for an organisation structure, but the four common factors in all organisations are: • Co-ordination of effort, • A common goal, • Division of labour, • Hierarchy of authority (Kreitner et al., 2002:508).

The co-ordination of effort is achieved through formulation and enforcement of policies, rules and regulations. Division of labour occurs where individuals perform different tasks but want to achieve the same goal (common goal). Making sure that the right people do the right things at the right time is called the hierarchy of authority or chain of command. Keeping al these factors in mind, an organisation chart can be defined as a graphic illustration showing chain of formal authority and division of labour (Kreitner et al., 2002:509).

John Child proposed a strategic choice model that was based on behavioural rather than on rational economic principles. This model resulted from a political process involving organisational power holders. This model, as a model of organisational structure, is determined largely by a dominant coalition of top management strategists (Kreitner et al., 2002:528).

13 FIGURE 2.2 THE RELATIONSHIP BETWEEN STRATEGIC CHOICE AND THE ORGANISATIONAL STRUCTURE

Organisational Objectives

Organisational Strategic strategies Environmental decisions Organisational constraints made by structure dominant • Target markets • Capital sources/uses • Human Organisational Decision resources • Technology effectiveness makers’ • Total quality management personal

beliefs

Corrective action

Source: Kreitner et al. (2002:528).

Figure 2.2 illustrates that specific strategic choices or decisions reflect how the dominant coalition perceives environmental constraints and the organisation’s objectives. The personal beliefs, attitudes, values and ethics of decision makers are used to temper strategic choices. This theory directs our attention that an organisation is structured to accommodate its mix of strategies. Therefore corrective action must be taken if the organisation effectiveness criteria are not met. The strategic choice theory and research teach managers two practical lessons; • The environment is just one of many determinants of structure; • The design is subject to the interplays of personal power and politics, (Kreitner et al., 2002:529). Different organisations have different problems: an organisation that provides goods or services in an environment with slow technological innovation and relatively few competitors differs from an organisation in a growing, changing and highly competitive market where there is a lot of uncertainty. Relative 14 stability in an organisation’s environment has major implications for its strategy and structure. Firms operate in stable and changing environments and therefore some functions may undergo little structural changes and others may change considerably (Hellriegel et al., 2001:223).

2.3 DIFFERENT TYPES OF ORGANISATIONS The movement towards tighter and leaner organisations has drawn attention to the importance of alternative forms of structure and has placed increased emphasis on the demand for flexibility. Due to the revolutionary changes in organisations, the need is great for new and flexible structures. The age of the Internet and e-commerce demands adaptations of new organisational architectures.

Hellriegel et al. (2001:202) conclude that organisational structures help employees work together effectively by: o Assigning human and other resources to tasks, o Clarifying the responsibilities of employees and how their efforts should mesh through job description, organisational charts and line of authority, o Informing employees about the rules, operating procedures and performance standards, o Establishing procedures for collecting and evaluating information to help management to make decisions and solve problems.

To be able to create an organisational structure for the EDM fire-fighting service, it is important to investigate what the different structures in the organisation are. The following structures will be discussed: • Bureaucratic organisation, • Flat organisation, • Network organisation, • Virtual organisation, • Geographic structure.

15 2.3.1 Bureaucratic Organisational Structure Swanepoel et al. (2000:244) define the bureaucratic organisational structure as a structure that results from what is known as the mechanistic approach to organisation design. Robbins (1989:489) states that the primary strength of the bureaucracy lies in its ability to perform standardised activities in a highly efficient manner. There is little need for innovative and experienced decision makers below the level of senior executives. The peak of a bureaucracy’s popularity was probably in the 1950’s and 1960’s. Firms such as IBM and General Electric were organised as a bureaucracy. Although this structure is currently out of fashion, the majority of large organisations still take on basic bureaucratic characteristics, particularly specialisation and high formalisation organisations.

The span of control has generally been widened, authority has become more decentralised and the functional departments have been supplemented with an increased use of teams (Robbins; 1989:490). Characteristics of a bureaucratic organisation are: • Emphasising the importance of achieving high levels of production, • Efficiency through extensive use of rules and procedures, • Centralised authority, • High specialisation of labour, • Tall pyramid-shape structure with a hierarchy of many levels, • Top-down, “command-and-control”, military-like structure, • Emphasis is placed on departmentalisation, • Work is often structure in rigid functional work units, with definite boundaries between different jobs, sections, departments, divisions and other word units (Swanepoel et al., 2000:244).

Figure 2.3 is an example of a bureaucratic organisation structure.

16 FIGURE 2.3 BUREAUCRATIC ORGANISATION STRUCTURE

Source: Swanepoel et al. (2000:245).

2.3.2 Flat Organisation Structure Swanepoel et al. (2000:244) state that a flat structure is essentially the result of following the organic model or approach to organisation design. Characteristics of a flat organisation structure are: • Importance of high levels of adaptiveness, responsiveness and development through limiting the use of rules, regulations and procedures, • Decentralisation of authority, • Lower degrees of specialisation, • Wide spans of control, • Jobs are more broadly defined with greater overlaps and flexible boundaries between different word units, • Teams are part of flat structures (Swanepoel et al., 2000:245).

Figure 2.4 is a graphic illustration of a flat organisational structure.

17 FIGURE 2.4 FLAT ORGANISATION

Source: Swanepoel et al. (2000:245)

2.3.3 Network Organisation The network structure blends traditional management concepts by the exchange of agreements. The structure relies heavily on outsourcing and contracting out. This gives companies the opportunity to downsize to their core areas of competence and establish alliances with independent suppliers and distributors. This structure is based on cooperative, multidisciplinary teams and business networks across the enterprise with a modular or virtual organisation structure (Swanepoel et al., 2000:246).

Bateman and Snell (1999:322) define a network organisation not as one organisation, but as a web of interrelationships among many firms with flexible arrangements among designers, suppliers, producers, distributors and customers. Each firm is able to pursue their own distinctive competence. The role of managers shifts in a network from that of command and control to more like broker. The broker assembles and coordinates participants in a network and plays a designer, process engineering and nurturing role to make certain the relationships are healthy and mutually beneficial. Schultz, Bagraim, Potgieter, Viedge and Werner (2003:238) are of the opinion that to create successful external relationships, the six “I’s” can be effective in creating alliances of flexible partnerships: • Importance of relationships is stressed, • Investment in the form of financial resources, management attention and sponsorship, • Interdependence of participants helps maintain the balance of power,

18 • Integration of participants takes place in order to maintain essential points of contract and communication, • Information is disseminated to each partner, • Institutionalisation bolsters a framework of supporting mechanisms, from legal requirements to shared values.

FIGURE 2.5 A DYNAMIC NETWORK

Designer Producer

Brokers

Supplier Distributors

Source: Bateman and Snell (1999:323)

Schultz et al. (2003:238) state that the network design emphasises horizontal structures and processes needed to manage complex sequential and reciprocal interdependencies among individuals, teams, departments and divisions. This design, as per figure 2.5, also draws on the revolution in information technologies that enables formation of convenient and low-cost networks, and changes as needs and goals change. Hellriegel et al. (2001:235) reiterate that organisations cannot operate effectively unless they can communicate quickly, accurately and over great distance. When these capabilities exist, managers of network organisations can: • Search globally for opportunities and resources, • Maximise the use of resources, • Look only at core competencies, • Outsource activities that can be better done by someone else at less cost.

Advantages of the network structure is that of a very lean structure with very few employees on the payroll because most production and services are 19 contracted for and coordinated by means of vertical information processing systems. Workforce is flexible and challenges are because employees are contractors who respond to changing tasks and new demands. Some networks organisations preserve highly specialised teams (Hellriegel et al., 2001:236).

Successful networks potentially offer flexibility, innovation, quick responses to threats and opportunities, and reduced cost and risk. But for these arrangements to be successful, several things must occur: • The firm must choose the right specialty, • The firm must choose collaborators that are also excellent at what they do and that provide complementary strengths, • The firm must make certain that all parties fully understand the strategic goals of the partnership, • Each party must be able to trust the others with strategic information and also trust that each collaborator will deliver quality products (Bateman and Snell; 1999:323).

The most prominent disadvantages of a network structure are that the managers have very little control, operations are not under one roof and managers must rely on independent contractors and subcontractors to do the work. Contractors can make mistakes and not report them, which results in mistrust. Defining the organisation is very difficult due to the continuous changes that are taking place. The frequent change of contractors has the effect that new relationships must be built every time a contractor changes. The relationship building takes time and is a money consumer due to the frequency. Commitment to the organisation is low because employees tend to be committed to the contractor that employs them (Hellriegel et al., 2001:236).

2.3.4 The Virtual Organisation A key effect of information and communications technologies such as the Internet is an increase of virtualisation in business activities and ways of working. Virtualisation overcomes constraints of time and distance.

Skyrme (1999:20) defines the virtual corporation as “a temporary network of independent companies that co-ordinates activities to meet a common

20 objective, such as a new product development or to meet a common objective, such as a new product development or to meet a customer’s needs”

Virtual organisations can range from a stable supply network that works as a single organisation, to a loose federation of independent firms that come together temporarily for specific activities.

Virtualness can also operate at several levels, from individual to inter- organisational. These variations give rise to many types of virtuality, ranging from workers communicating with colleagues globally via phone or e-mail, or the creation of consortia to work on a specific project. Figure 2.6 illustrates some of these types in the form of a nested hierarchy where there is a large degree of inclusivity between the levels.

FIGURE 2.6: NEST OF VIRTUALNESS

Source: www.skyrme.com [Accessed November 2003] A virtual organisation is not just outsourcing. Virtual organisations are more about sharing of strengths and not about people coming in to do a particular task. Outsourcing and virtual organisations should not be confused. The following are common features that distinguish virtualisation from traditional organisations: • Information and communications technology allows operations to be dispersed, • The barriers of time and space are reduced, 21 • Organisational structures are network-like and more dynamic, • The interface with customers and markets is different, • Employees and associates (business partners, suppliers, customers) adopt new patterns of work, • The locus of knowledge is diffused. It is not necessary in a specific place, • Relationships not as bureaucratic, • Company can be virtual and real, http://www.emporia.edu/ (2002).

The virtual organisation holds a number of important challenges for the future. Brewster, Dowling, Grobler, Holland and Wärnich (2000:211) say that issues such as effective communication and planning will need attention, as the face- to-face approaches which have worked well over the years will disappear. In addition, to capitalise on the flexibility and speed that are possible through these networks, managers and team members will have to form clear agreements from the outset regarding issues such as performance expectations, team priorities, communication links and resource allocation.

Robbins (1989:493) states that the virtual organisation is highly centralised with little or no departmentalisation. The only primary drawback to this structure is that it reduces management’s control over key parts of its business. “Commitment, trust and loyalty could erode badly if managers do not heed this caution by Charles Handy, the British management expert quoted earlier.” According to Handy: “A shared commitment still requires contact to make the commitment feel real’” (Kreitner et al., 2002:533).

2.3.5 Geographic Organisation Thomson and Strickland (1999:291) define a geographic organisation as a structure that suits firms well and that pursues different strategies in different geographic regions. This organisation, which is organised on the basis of geographic areas or territories, is a common structural form for enterprises operating in diverse geographic markets or serving an expansive geographic area. The main reason for its popularity is that it promotes improved performance. In the public sector, such organisations as the U.S. Postal Service and the Red Cross have adopted territorial structures in order to be directly accessible to geographically dispersed clienteles.

22 “The primary advantage of both the product and customer/regional approaches to departmentalisation is the ability to focus on customer needs and to provide faster, better service. But again, duplication of activities across many customer groups and geographic areas is expensive” (Bateman & Snell; 1999:292).

Hill (2004) has designed a geographical structure for a geographic organisation:

FIGURE 2.7 THE GEOGRAPHIC ORGANISATION STRUCTURE

Individual Stores Source:http://courses.bus.msu.edu/materials/1022/ch11a.ppt

23 FIGURE 2.8 - THE ADVANTAGES AND DISADVANTAGES OF A GEOGRAPHIC STRUCTURE

STRATEGIC ADVANTAGES STRATEGIC DISADVANTAGES

Allows tailoring of strategy to Poses a problem of how much needs of each geographical geographic uniformity headquarters market should impose versus how much geographic diversity should be allowed Delegates profit/loss Greater difficulty in maintaining responsibility to lowest consistent company image/reputation strategic level from area to area when geographic managers exercise much strategic freedom Improves functional Adds another layer of management to coordination within the target run the geographic units market Takes advantage of economies Can result in duplication of staff of local operations services at headquarters and geographic levels, creating a cost disadvantage Regional units make an excellent training ground for higher level general managers Source: Thomson and Strickland (1999:293)

2.4 THE LOCATION OF CAPACITY Slack, Chambers and Johnston (2001:159) define location as the geographical positioning of an operation relative to the input resources, other operations or customers with which it interacts. Sometimes operations cannot logically justify their location, as some are where they are for historical reasons. The decision not to move is made on an assumption that the cost and disruption involved in changing location would outweigh any potential benefits of a new location. The retail industry knows what it means not to be at the right location. If the location is wrong it can have a significant impact on profit. The location decision 24 is also important in other types of operations. If a fire service station is incorrectly located, it can slow down the average journey time of the fire crew in getting to the fire. Therefore the location decision will usually have an effect on an operation’s cost as well as on its ability to serve its customers. The decision to relocate is very important due to the fact that moving an operation from one site to another can be very expensive and the risks of inconveniencing customers is very high and it is very difficult to undo or reverse.

There are two reasons for an organisation to make location decisions. Firstly, these changes may occur in response to a demand for goods and services that can increase or decrease according to the aggregated volume of demand. For example, the increase in call outs for fires in a certain region due to the lack of rain and changing weather patterns can suggest that a fire station could open a new station. Secondly, the changes in supply and availability of inputs to the operation and the changes in cost are reasons for making the location decision, for example the cost of fuel when travelling long distances to fire call outs (Slack et al., 2001;159).

It is very important to achieve an appropriate balance between three related objectives to make a location decision. These objectives are as follows: • The spatially variable cost of the operation due to the variables that change with the geographical location, • The service the operation is able to provide to its customers, • The revenue potential of the operation (Slack et al., 2001:161).

For organisations that are profit driven, the last two objectives are related. In non-profit organisations like the public service, revenue potential might not be a relevant objective and so cost and customer service are often taken as the twin objectives of location. The decisions made about where to locate an operation are concerned with minimizing spatially variable costs and maximizing revenue and/or customer service. All types of organisation are affected by both variables but not always equally for all organisations. For example, customers may not care very much where the products are made and location is unlikely to affect the operation’s revenues significantly. The cost of the operation will be greatly

25 affected by the location. Services are both cost and revenue affected by location (Slack et al., 2001:161).

Slack et al. (2001:161) also state that the location decision for any operation is determined by the relative strength of supply-side and demand-side factors as shown in figure 2.9.

FIGURE 2.9 - SUPPLY AND DEMAND: SIDE-FACTORS FOR LOCATION DECISIONS.

Supply–side The Demand–side factors Operation factors

Which can vary Which can vary in in such ways as such ways as to to influence cost influence customer

• Labour Costs • Labour Skills • Land Costs • Suitability of Site • Energy Costs • Image • Transportation Costs • Convenience for • Community Costs Customers (e.g. speed and dependability)

Source: Slack et al. (2001:161).

According to figure 2.9, the supply-side influences vary in such a way as to influence cost as location varies. The following supply-side factors influence location; • Labour costs, • Land costs, • Energy costs, • Transportation costs, • Community factors.

26 Labour costs are the costs of employing people with particular skills. Labour cost can differ from area to area and also between different countries. These costs include both direct wage costs and non-wage costs. Labour costs exert a major influence on the location decision (Slack et al., 2001:161).

Land costs are the costs to acquire the site itself or to rent the site. If the site is in a main street, the rent will be much higher than that for a site in a rural area (Slack et al., 2001:162).

Energy costs are important for an operation that uses large amounts of energy, such as aluminium melting which is directly dependent on the availability of hydroelectric generation of energy in an area. This factor can influence a location decision directly (Slack et al., 2001:162).

Transportation costs can be considered in two parts. One is the cost of transporting inputs for their source to the site of operation. The other part of transportation cost is the transporting of goods from the site to customers (Slack et al., 2001:162).

Community factors are those that derive operation costs from the social, political and economic environment of its site. Community factors can have a direct influence on the profitability of an organisation, for example the taxes are very high. These factors are as follows: • Local tax rates, • Capital movement restrictions, • Government financial assistance, • Government planning assistance, • Political stability, • Local attitudes to inward investments, • Language, • Local amenities (for example schools, theatres, shops), • Availability of support services, • History of labour relations and behaviour, • Environmental restrictions and waste disposal, • Planning procedures and restrictions (Slack et al., 2001:163). 27

Demand-side factors can vary in such a way as to influence customer service/revenue as location varies. The demand-side factor areas are as follows; • Labour skills, • Suitability of site, • Image, • Convenience for customers (speed and dependability).

Labour skills are important as the ability of the local labour force can have an effect on customer’s reaction to the products or services which the operation produces (Slack et al., 2001:165).

The suitability of the site itself can affect an operation’s ability to serve customers’ and generate revenue. For example, if a luxury hotel moves away from a lovely beach with palm trees to an industrial estate, it will rapidly lose its attraction and revenue collection will decrease (Slack et al., 2001:165).

The image of location is important due to the fact that some locations are firmly associated in customers’ minds, for example the different images of a hospital and a bank

Convenience for customers is the most important demand-side factor for many operations. Hospitals are therefore located close to centres of demand. Similarly with other public services, location has a significant effect on the ability of an organisation to serve its customers effectively (Slack et al., 2001:165).

To assist managers in making a good judgement in a location decision, there are two more techniques to help make this decision. These are the weight-score method and the centre-of-gravity method.

2.5 THE FIVE PERFORMANCE OBJECTIVES Useful classifications of the performance objectives are used to identify the operation stakeholders. Slack et al. (2001:43) stated that stakeholders are the

28 people and groups of people who have an interest in the operation and who may be influenced or can influence the operation’s activities.

Stakeholders can also be identified as internal or external. Internal stakeholders are identified as the operation’s employees and the external stakeholders are the society or community groups and the company’s shareholders. External stakeholders can have a direct commercial relationship with the company by means of the company’s value chain. In government departments, who are a non-profit organisations, stakeholders can overlap; they can be “shareholders” of a public service agency as well as their main customer.

In order to be more competitive, there are objectives that will contribute to achieve the goals. The five basic performance objectives can be applied to all types of operations. These five objectives that will assist you to be more competitive are: • You want to do things right → quality objective, • You want to do things first → speed objective, • You want to do things on time → dependability, • You want to make changes where necessary → flexibility, • You want to do things cheaply → cost objective. A graphic display of these objectives is given in figure 2.10.

29 FIGURE 2.10 - PERFORMANCE OBJECTIVES

Minimum Price, Highest Value

Dependable Delivery COST Quick Delivery DEPENDABILITY

Minimum cost SPEED Maximum value Reliable Fast Operation Throughput Error-Free Processes Ability to Change QUALITY FLEXIBILITY Error -free products and services Frequent new products Maximum choice

Source: Slack et al. (2001:57)

2.5.1 The Quality Objective Everyone strives for error-free or mistake-free services or goods that are “fit for their purpose”. Quality means doing things right. Each operation has it own set of tasks or procedures that needs to be done right. In some ways quality is the most visible part of what an operation does. Good quality products and services mean high customer satisfaction and therefore the likelihood that the customer will return or use the service again. An example of what quality can be is given in figure 2.11.

30 FIGURE 2.11 – QUALITY MEANS DIFFERENT THINGS IN DIFFERENT OPERATIONS.

Quality could mean….

HOSPITAL AUTOMOBILE PLANT • Patients receive the most • All parts are made to specification. appropriate treatment • All assembly is to specification. • Treatment is carried out in the • The product is reliable. correct manner. • Patients are consulted and kept informed.

Source: Adapted from Slack et al. (2001:45).

Another way of qualifying quality is as follows: • Quality inside the operation. • Quality reduces cost. Fewer mistakes in micro operations will use less time for corrections. • Quality increases dependability. A supermarket cannot afford to run out of stock, it will lose customers and also income due to the fact that the customers will go and buy from the opposition.

2.5.2. The Speed Objective The time between a customer asking for goods or services and the time the customer receives the goods or services must be kept to a minimum. Thus increase the availability of goods or services. The faster a customer can receive the goods or services, the more likely he or she will be to purchase them or use it.

Speed can also be inside the operation if fast response to external customers is made possible by fast decision-making and speedy movement of materials and information inside the organisation. Speed also reduces the turn around time of inventory, especially in manufacturing plants where the increase in demand requires the increase in production. The effect thereof is that the shelf life of

31 inventory is kept to a minimum. Speed reduces risks. Forecasting tomorrow’s events is far less of a risk than forecasting next year’s (Slack et al., 2001:49).

2.5.3. The Dependability Objective Giving the dependability advantage to the customer means that you are doing things on time so as to keep the delivery promise you have given your customers. Customers may judge the dependability of an operation after the product or service has been delivered (Slack et al., 2001:50). No matter how inexpensive the service is or the goods are or how fast it is advertised as being available, if the service is always late or for example the buses are always full, then the potential customer will seek service elsewhere.

An operation’s internal dependability is governed by the micro operations. The elimination of dead time is a good example of increasing dependability. A decrease in process cycle time can be achieved by means of excellent scheduling of tasks and ensuring sufficient supply of the required resources (Slack et al., 2001:50).

Ineffective use of time will translate into extra cost. Spare parts might cost more to be delivered at short notice. Dependability gives stability. If everything in an operation is perfectly dependable, a level of trust will have been built up between the different sections/departments of the operation. Everything will be more predictable and each section of the operation can concentrate on improving its own area of responsibility without having its attention diverted to other sections (Slack et al., 2001:51)

2.5.4 The Flexibility Objective Melnyk and Denzler (1996:206) state that flexibility of a process should be evaluated by measuring the number of steps, since many steps usually inhibit flexibility. Automation increases flexibility. Physical links move work-in-process quickly from one activity to the next, but they also increase changeover time between runs for different products.

32 Flexibility is also able to change far enough and fast enough to meet customer requirements. Customers will need the operation to change so that it can provide four types of requirement: • Product/service flexibility → different products and services, • Mix flexibility → a wide range or mix of products and services, • Volume flexibility → different quantities or volumes of products and services, • Delivery flexibility → different delivery times (Slack et al., 2001:51).

Developing a flexible operation can also have advantages to the organisation itself. Flexibility speeds up response time due to the fact that operations can be changed to handle special circumstances. Flexibility can also save time where people are multi skilled and can adapt quickly from one task to another. Flexibility maintains dependability. Operations can take place on schedule when unexpected events disrupt the normal events (Slack et al., 2001:54).

2.5.5 The Cost Objective The production of goods and services at a cost which enables them to be priced appropriately for the market while still allowing for a return to the organisation or a non-for-profit organisation gives good value to the taxpayers or whoever is funding the operation. Cost is the major operation objective. The lower the cost of producing their services or goods, the lower is the price to their customers (Slack et al., 2001:55).

An operation will spend its money on staff, facilities, technology, equipment cost and material costs. Comparing the cost structure of different operations is not always straightforward, and depends on how costs are categorised. Cost can be categorised as fixed costs and variable costs. Cost is affected by the other performance objectives: • High-quality operations do not waste time or effort having to re-do things, • Fast operations reduce the level of in-process inventory between micro operations, • Organised operations reduce administrative overheads, • Dependable operations do not spring any unwelcome surprises on their internal customers, 33 • Flexible operations adapt to changing circumstances quickly and without disrupting the rest of the operation. Flexible micro operations can also change over between tasks quickly and without wasting time and capacity (Slack et al., 2001:56).

2.6 SUMMARY In creating the working operational structure for the EDM fire fighting service and in obtaining enough funds to upgrade the resources to an effective and efficient service, the EDM fire fighting service will be the number one fire fighting service in South Africa. This can only be achieved if the localisation decision is made correctly and the five performance objectives have been met.

The organisational structure and location may not be the factors that influence the performance of a fire fighting service. Chapter 3 will determine those factors by addressing the following sub-problem: What viewpoints do knowledgeable people have about an operational structure for a fire fighting service and how should this service operate?

34 CHAPTER 3

BENCHMARKING

3.1 INTRODUCTION “Being a paramedic is the most fulfilling profession I’ve ever experienced it is full of challenges, variety, and the opportunity to help someone in need. At the end of each day, I smile to myself because I know that I made a difference. It's an honour to be a paramedic” (Casey O’Brien, Rural/Metro paramedic; http:www.ruralmetrotn.com/htm/careers_frameset.htm).

Due to the fact that paramedics, and that include fire fighters, are very passionate about their jobs, is it important to create organisational structures for them to do their work. To be able to create a workable organisational structure it is important to benchmark what knowledgeable people‘s viewpoints are about a fire fighting service.

This chapter addresses the following sub-problem: What viewpoints do knowledgeable people have about an operational structure for a fire fighting service and how should it operate? Each fire fighting service is unique in how it operates and who are funding the service. For the purpose of this study the following will be investigated: • Public fire fighting service, • Private fire fighting service.

Public fire fighting service is still very common in South Africa. The problems are that they are understaffed, under funded and management seems to be unaccountable. Most of the fire brigades in South Africa form part of a municipality which is situated in big towns.

Private fire fighting services are still in the embryo state as most of these services are owned by private companies like PetroSA and Sappi. The Zululand Fire Protection Service is an example of one semi-private fire fighting service in South Africa. It is part of Working For Fire. The Rural/Metro Corporation in the US is a private fire fighting service that operates in

35 Scottsdale, Arizona, Tennessee, Oregon. It operates in 50 communities in five states in America (hhtp:/blog.lewrockhwell.com/ 2004). Rural/Metro has created a concept of providing a service to areas that may have no service at all, or otherwise may have difficulty in obtaining such a service. This service is funded by an annual subscription basis (www.ruralmetrotn.com/ 2004).

Poole (2004), a free-lance writer based in Scottsdale, Arizona, states that fire fighting services don’t need to be provided by government (www.fee.org/ 1 Nov, 2004).

In the light of the above statements, it may be beneficial to investigate public as well as private fire fighting services. Therefore the following fire fighting and public services were investigated: • Rural/Metro Corporation, • Zululand Fire Protection Services, • Sacramento Metropolitan Fire District (METRO FIRE), • Metropolitan Police Department.

3.2 RURAL/METRO CORPORATION

The Rural/Metro Corporation is a private emergency-services company specialising in ambulance and fire protection services. The ambulance services include emergency medical services (EMS), non-emergency transports and other support services. Fire services include municipal, industrial, airport/rescue, emergency response training for cruise lines, wildland and hazardous materials response ( www.ruralmetrotn.com/ 2004).

Rural/Metro Corporation started its first fire service in 1948. An ambulance service was added in 1975. The company now employs more than 11 000 people, answering 2 million emergency calls a year in 400 communities in the United States. Corporate headquarters are located in Scottsdale, Arizona. Rural/Metro stock is traded on the NASDAQ stock exchange (www.ruralmetrotn.com/ 2004).

36 Rural/Metro has several operations in Tennessee, including Shelby County (Memphis), Nashville, Knox, Blount, Loudon and Franklin counties. In addition to ambulance and fire protection, Rural/Metro’s Tennessee operations include an airport rescue fire fighting contract with FedEx in Memphis, a plant safety and security agreement with ALCOA, and industrial and maritime emergency response training (www.ruralmetrotn.com/ 2004).

The Rural/Metro Fire Department provides a high-quality, cost-effective fire service. Funding is by three methods. Some areas are funded by a volunteer subscription method where the home owner pays an annual fee based on square footage. Another method is a licensing agreement, where the town has an ordinance (law) that demands of all residents in the community to pay a subscription. The third is by contract, where the town collects a tax and in turn pays for the services under contract. (Morris, 2004).

Non-members are billed for service at the rate of $800 per hour, per apparatus, for all fire calls. Non-member fees for a typical house fire can cost as much as 10 years’ worth of membership costs. Homeowner’s insurance usually pays only a fraction of the bill, leaving the property owner responsible for the difference. The Rural/Metro Corporation provides the following services: • Fire response, • First Responder medical service, • Applicable discounts on a homeowner’s insurance premiums, • Free home fire and safety inspections, checks of smoke detectors and fire extinguishers, and home escape plans that can save a family in the event of a fire, • Rural/Metro’s life-saving fire prevention and safety programs at schools, churches, civic groups, neighbourhood meetings or workplaces, • Services involving hazardous materials (www.ruralmetrotn.com/ 2004).

Rural/Metro’s employees are at the heart of everything they do. They are an organisation of people serving people in their hour of need. Every member of the Rural/Metro team is a partner in the organisation’s success, and they work hard to provide a work environment that is stimulating, engaging and rewarding.

37 Rural/Metro Corporation believes in searching for excellence in the employment process and it seeks to employ only those individuals with innovative ideas, a willingness to work as a team and a deep sense of community partnership and support (www.ruralmetrotn.com/;2004).

The Rural/Metro organisation structure is as follows;

FIGURE 3.1 - CORPORATE ORGANISATIONAL CHART

Corporate Organizational Chart

Board of Directors Cor J. Clement Sr., Chairman

Board Audit Board Governance Board Compensation Committee Jack Brucker Committee Committee President & CEO

Christine Wilson Executive Assistant

Kurt Krumperman Barry Landon* Donna Berlinski VP Michael Zarriello SVP Director of Corporate Strategic Initiatives SVP & CFO Billing & Collection Governance & Compliance & Federal Affairs

Mid-Atlantic/N.E. Western U.S./Central SW Ambulance Southern Emergency Service Florida Emergency & Arizona Fire Emergency Group Group Service Group Barry Landon Susan Brown Todd Walker Boo Heffner President Group President *Also Group President Group President Group President October 26, 2004

Source: www.ruralmetrotn.com/ (2004).

Figure 3.1 is an example of the corporate organisation structure. The fire services are divided into three fire “regions” in Arizona. They are in the Phoenix, Tucson and Yuma areas. They are all of similar size with their own fire chief. The Fire Chief reports to the Vice President (Morris, 2005). The organisational structure as per region is illustrated in Figure 3.2.

38 FIGURE 3.2 - REGIONAL ORGANISATIONAL CHART

Fire Chief Gary Morris

Maricopa/Pinal Fire Ops. Yuma Fire Operations Exec. Asst. Chief D. Rathbun B. Hansen Chief of Operations Human Resources C. Ojile Programmer/System Analyst Charles Landon Training/Special Projects Assistant Chief K. Redden Communications Manager E. Anderson Scheduling/Finance Regional Training Officer Pima Fire Operations Bus. Dev./Pub. Relations C. Pendleton M. Brewer/T. Mulder TBN Randa Hightower Chief of Operations Comm Center

Ftn. Hills Central Cty. West Cty. East Cty. Fleet Fire Prevention Acting Batt. Chief Batt. Chief District Chief District Chief D. Caudle Manager District Chief M. Zimmerman C. Fitzgerald M. Norling B. Grubb C. Lawson Mike Norton

Shop Sta # 822 Sta # 828 Sta # 821 Sta # 841 Queen Creek Warehouse Sta # 823 Sta # 837 Sta # 854 Westside Prevention Sta # 855 Cave Creek / Carefree Sta # 857 Assist Sta # 859 W/FH&PV

Source: R Hightower (2004).

3.3 ZULULAND FIRE PROTECTION SERVICES Jake Oosthuizen formed Zululand Fire Protection Services cc after 16 years of aerial spraying and aerial fire fighting, with the object of providing a service to the Zululand timber industry. Initially the operation was started by taking over the control centre of the Zululand Fire Protection Association (ZFPA) which co- ordinated all fire fighting operations in the Zululand Coastal Area (ZCA) which covered approximately 80,000 hectares of timber. The operation control room was not very sophisticated and only provided a basic communication service to the timber growers in the area (http:/www.zpfs.co.za; 2004).

Today the control room is manned 24 hours a day, 12 months a year. Weather information is collected via the internet from approximately eight weather stations twice a day and fire danger index (FDI) is calculated. The internet is used for weather predictions, satellite images and communication with the forestry industry world wide.

39 The services of the Zululand Fire Protection Services (ZFPS) are contracted to the majority of the timber growers in KwaZulu-Natal and the North East Cape to co-ordinate aerial fire fighting operations. During the dry winter months, ZFPSD co-ordinates the aerial operations of the four fire associations which cover the KwaZulu-Natal area, for example KZNFPA, ZFPA, Zululand Inland Fire Protection Association (ZIFPA) and Maputoland. The total timber area of these associations is approximately 550 000 hectares. As ZFPS’s core competency is aerial fire fighting they have the following aircraft that are used by the three Zululand Associations: • ZFPA - 1 x Turbine, 400 gallon bomber and 1 x C182 spotter, • ZIFPA - 2 x Turbine, 400 gallon bombers and 1 x C182 spotter, • MAPUTALAND - 1 x C182 spotter (http:/www.zpfs.co.za; 2004).

Fast reliable bomber aircraft are indispensable. During severe fire weather conditions, bomber aircraft are placed on standby throughout the timber area to decrease the reaction time from call out to first drop. A fully laden Air Tractor 802 (3000lts) can travel across any terrain at 6.16 kilometers per minute. Once at the fire the aircraft can dump a large load of foam or retardant or several smaller loads, depending on the fire situation. With sufficient bombers available, a load could be dropped on the fire every 3 minutes. This aerial attack can prevent a fire from climbing into the crowns, as the area is wetted, which slows down the spread. All this is happening while the ground crew are still on their way (http:/www.zpfs.co.za; 2004).

During the dry winter months which last from July to October, ZFPA, Zululand Inland Fire Protection Association and the Department of Water Affairs and Forestry contract in bomber and spotter aircraft from private aircraft operators. ZFPS co-ordinates all the aircraft operations on behalf of all the stakeholders and the Department of Water Affairs and Forestry in the Maputaland area. Two turbo Thrushes and one C182 are based in Melmoth, covering the Zululand Inland Area. One AT402, one turbo Thrush and one C182 are based in Kwambonambi covering the Zululand Coastal area. One turbo Thrush and one C182 cover the Maputaland area of Mbazwana and Manzingwenya.

40 In October 1999 Zululand Fire Protection Services secured a contract with a major timber company and provided a complete ground fire detection and control service. When fire fighters are not fighting fires or training, they do silviculture operations. Silviculture services are the following; • Fire break preparation, including burning, • Pre- plant preparation, including full cover sprays and burning, • Chemical and manual weed control, • Maintenance of conservation areas, • Planting (http:/www.zpfs.co.za; 2004).

The staff of ZFPS is highly motivated and each is a specialist in his field. During the dry winter months the aircrafts are the first line of attack. Aircraft cannot operate efficiently without adequate ground support. This support must be in the form of trained ground crews equipped with quality equipment.

During the remainder of the year, ZFPS utilizes fast attack vehicles with the capacity of 700 liters of water and three fire fighters that operate as the first line of attack. These vehicles are backed up by other tankers that carry 2500 liters of water and five fire fighters, one tanker with 5000 liters of water and eight fire fighters and a bulk tanker with 13 000 liters of water.

These vehicles and fire fighters are strategically placed with regard to current fire danger weather and remain in contact with the operation center at all times (http:/www.zpfs.co.za; 2004).

The Zululand Inland Area is covered by the Zululand Inland Fire Protection Association (ZIFPA). ZIFPA is made up of 25 members, covering approximately 44 000ha, working towards the common goal of preventing fires, detecting fires, utilizing initial attack fire fighting principles to minimize agricultural and forestry losses through fire (http:/www.zifpa.co.za; 2004).

The Zululand interior is relatively mountainous with a fairly even mix of Pine, Wattle and Eucalyptus plantations that are harvested in an average of 12 years. The area has the unfortunate notoriety of having the fastest, most devastating fires. In Zululand history, 6 000ha has been destroyed in 6 hours! Extreme fire

41 weather conditions, aspect and terrain make this area a nightmare to fight fires in (http:/www.zifpa.co.za; 2004).

The Zululand Coastal Area is covered by the Zululand Fire Protection Association (ZFPA). The ZFPA is made up of 20 members, covering approximately 80 000ha, working towards the common goal of preventing fires, detecting fires, and utilizing initial fire fighting attack principles to minimize agricultural and forestry losses through fire.

Zululand Coastal is one of the very few areas in South Africa that has a twelve month fire season due to the unique weather conditions. It is a relatively flat area with predominantly colonial Eucalyptus plantations that are harvested in an average of seven years. High temperatures, coupled with high humidities and the average rainfall of approximately 1100mm per year, make Zululand Coastal the 'Forestry Pantry' of South Africa. The trees grow straight and fast - unfortunately so do the fire fuels! The following are aircraft and fire statistics updated 09/10/2004

TABLE 3.1 - ZULULAND COASTAL FIRES AND LOSSES Total A/c Timber Ave A/c costs Year Ha/Fire Fires Fires Burnt per Fire 1995 299 45 310 1.04 R 1,827.25 1996 240 36 365 1.52 R 2,173.15 1997 196 23 149 0.76 R1.227.88 1998 416 47 2380 5.72 R 7,778.43 1999 457 30 282 0.62 R 3,144.47 2000 154 21 109 0.72 R 6,148.10 2001 260 48 187 0.7 R 5,933.26 2002 565 101 481 1.02 R 3,804.28 2003 557 188 1284 2.31 R 4,315.80 2004 195 22 198 1.52 R 22,186.23 Average 334 56 575 1.59 R 6,367.89

Source: http://www.zfps.co.za (2004).

42 TABLE 3.2 - ZULULAND INLAND FIRES AND LOSSES Total A/c Timber Ave A/c costs Year Ha/Fire Fires Fires Burnt per Fire 1995 170 41 5789 33.75 R 2,212.93 1996 69 12 360 5.24 R 1,720.52 1997 79 17 112 1.01 R 2,004.79 1998 110 35 2254 20.65 R 16,577.23 1999 141 56 981 6.96 R 11,875.43 2000 102 36 456 5.14 R 11,000.93 2001 178 46 416 2.33 R 8,264.11 2002 140 28 443 3.17 R 9,080.75 2003 113 32 927.5 8.21 R 14,883.19 2004 44 16 360 6.99 R 13,331.29 Average 115 32 1210 9.35 R 9,095.12

Source: http://www.zfps.co.za (2004).

Forest fires are one of nature’s most destructive forces, yet nothing has ever been done to improve detection methods which have remained the same for hundreds of years. Technology plays a vital role in all spheres of forestry today. In order to help preventing great damage caused by a fire, the ZFPS have 11 electronic fire detection cameras. These cameras send live video images from seventy two meter towers up to thirty five kilometres away. This camera system is called the Firehawk. The Firehawk is a computerised fire detection system whereby rotating digital cameras covering large forestry areas transmit information to a base station where the Firehawk software differentiates between fire, smoke and glow and automatically raises an alarm. Firehawk is a computer aided forest risk management system that is controlled by a human operator.

The Firehawk has replaced the manned lookout towers that are as old as forestry itself. The human element associated with these lookout towers is the problem. More often lookout towers are late in reporting fires. Guards have to work long hours under difficult circumstances with only short breaks in concentration. It is also very difficult for these staff members to pinpoint the 43 actual location of any fire and to provide the best access details to the forester. Yet this antiquated method is still used in many parts of the world. Millions of dollars are spent annually in the combating fires, but nothing is done about their early detection. Firehawk’s capabilities are as follows:

• Multi-tower capabilities. Up to eight (8) remote camera installations can be connected to a single Firehawk processor. A base station can have many processors,

• Cameras scan a full 360 degrees in less than four minutes,

• Detection of smoke, fire and glow 24 hours a day,

• Manual manipulation of any camera in the system without affecting any other camera in the system,

• Multiple alarm reporting capabilities. Alarms are reported by the system without affecting any camera scanning its designated area,

• Geographical information on any camera and sector position by a simple touch of a button operation. This provides valuable information to forestry personnel, such as fire location and best access details,

• User friendly software, using the latest software platforms and operating systems,

• Multiple time zones setup capabilities.(day night and twilight),

• Unwanted image alarms are filtered out,

• The system can be used for Management check-ups and controlling of fire fighting operations (http://wwwfirehawk.co.za; 2004).

Firehawk has been designed to be installed in remote areas where cameras can cover a radius of 6 to 8 km from the point of installation. Although the capability of cameras is far beyond the 6 to 8 km radius, weather conditions do not always allow detection of fires beyond this safe margin. Real-time video images can be transmitted up to 30 km. without repetition being required. These video images are fed to a central command base where they are processed. Unwanted image alarms are filtered out and only those required are reported. 44 During the past six years the system has been installed and tested in various forestry areas throughout South Africa. The first installation was in the Richmond area of KwaZulu-Natal. This area was chosen because of the mountains, extreme temperature changes that occur, hot summers and very cold winters with snow on high ground. This ensured that the system was tested and developed to not only work under severe weather conditions, but also to be accurate enough to guide foresters to the source of a fire in the shortest possible time once detected.

FIGURE 3.3 - ELEMENTS OF THE FIREHAWK SYSTEM

Source www.zfps.co.za/firehawk_detection (2004).

Presently Firehawk is installed in two regions of South Africa, and is continuously being expanded. Forestry companies Mondi, Sappi, NCT, SQF and Masonite, private growers and Government agencies have committed themselves to the Firehawk system as being the preferred system for the detection of forest fires. 45

The results of using the Firehawk are as follows: • In 2000 during the fire season of Northern Kwa-Zulu Natal a total of 153 fires were detected. Of these 87 fires were detected at night. Results at the end of the season showed a burnt area rate of less than one hectare per fire (0.7 ha per fire),

• In the 1998 fire season, before the Firehawk system was installed the burnt area rate was 5.68 ha per fire (http://wwwfirehawk.co.za; 2004).

This proved that by having the capability to detect fires more rapidly, ground crews and aerial support are able to get to the source of fires much faster, thereby limiting damage and costs drastically.

3.4 SACRAMENTO METROPOLITAN FIRE DISTRICT (METRO FIRE) The Board of Directors of the American River Fire District adopted an application for reorganisation with the Sacramento County Fire Protection District on 25 September 1999. The new organisation was named the Sacramento Metropolitan Fire District or Metro Fire. The administration and membership of the District recognise the contribution and rich history of its processor departments. There are 16 prior fire departments represented in the Metro Fire organisation. The Sacramento Metropolitan Fire District is the largest district in the County of Sacramento and the seventh largest local fire agency in the State of California. The combined District will consist of approximately six hundred and ninety employees with an area encompassing 417 square miles that include Sacramento and Placer counties (http:www.smfd.ca.gov; 2004).

The name fire district implies that the primary responsibility is to suppress fires and that is why the district was created in the first place. The Fire District Law contained within the State of California Health and Safety code authorises a fire district to provide much more than only fire fighting. The following additional services are also provided; • Rescue services, • Emergency medical response,

46 • Hazardous materials emergency response, • Ambulance services, • Any other services related to protecting life and property (www.smfd.ca.gov/ADMIN.htm; 2004).

The US Census Bureau defined a special district as independent, special purpose governmental units other than school districts that exist as separate entities with substantial administrative and fiscal independence from general- purpose governments (www.smfd.ca.gov/specialdistrict.htm; 2004).

The local constituency determines the needed function that the special districts must fulfil. The following types of special districts are identified; • Airport districts, • Municipal districts, • Hospital districts, • Levee districts, • Public utility districts, • Recreation and park districts, • Utility districts, • Sanitary districts, • Water districts, • Resource conservation districts, • Water storage districts.

Special districts are also formed to provide mosquito abatement, library services, road maintenance, drainage function and fire services. The fire protection service forms part of the non-enterprise districts that generally do not charge for their services. In the multipurpose district, at least two services are rendered for example fire suppression and prevention and arson investigation (www.smfd.ca.gov/specialdistrict.htm; 2004).

47 TABLE 3.3 - FACTS ABOUT SACRAMENTO METROPOLITAN FIRE DISTRICTS

These statistics are from 2004-2005 Budget

General Budget $120,819,311

Demographics Area served (sq. mi.) 417 Population 599,257

ISO Rating 3 in hydranted /8 in un-watered areas

Counties served Sacramento and Placer Cities served City of Citrus Heights Mostly level. Two rivers, American & Geography Consumnes

Mather Field, McClellan Field, Rancho Airports Murrieta, and Rio Linda

48 Incidents 2003 56 700

Authorized Personnel Management 17 Fire Suppression 534 Support Staff 122 Total Paid Personnel 673 Reserve fire fighters 19

Physical Resources Fire Stations (Full Time) 38 Fire Stations (Volunteer) 2 Fire Stations (Part Time) 2 Engine Companies 39 Truck Companies 5 Reserve Firefighter Engine Companies 14 Transporting Medic Units 10 Transporting Medic Units (Part Time) 2 Personal Watercraft Response Units 2 Inflatable Rubber Boat Response Units 2 ARFF Units 3 Historical Fire Apparatus 8 Source: http:// www.smfd.ca.gov (2004)

The Operations Division provides a multitude of emergency and non-emergency services to the public. More than 500 firefighters working out of 42 stations are directly responsible to mitigate a wide variety of emergency incidents 24/7. In 2002 the fire district responded to over 54,000 alarms. The following equipment is operated by the fire district; • 10 transporting Advanced Life Support medics, • 7 reserve transporting medics, • 38 engine companies, • truck companies, • 24 grass engines, • 2 crash rescue rigs, 49 • 6 water tenders, • swift water rescue bikes, • swift water rescue inflatable rubber boats, • air units, • 3 reserve fire fighter engine companies, • 2 reserve fire fighter grass engines (http:// www.smfd.ca.gov; 2004).

Many of the District's engines are paramedic staffed and all responding units provide EMT coverage. In addition to emergency medical alarms and structural or wildland fire responses, the District's personnel are trained and equipped to deal with swift water emergencies, confined space incidents, technical rescues, hazardous materials incidents and crash fire rescue. In the 2000 wildland fire season the District sent engine companies to Arizona, Wyoming and Nevada to battle record size fires. Some of the District's personnel are trained and experienced as overhead team staff and served on major complex fires in Wyoming, Arizona, Colorado and Montana. Additionally, many of their members hold critical roles. In addition to emergency medical alarms and structural or wildland fire responses, the District's personnel are trained and equipped to deal with swift water emergencies, confined space incidents, technical rescues, hazardous materials incidents and crash fire rescue. Many of their members hold critical roles on the urban search and rescue “Task Force 7 Team”. This Team responds to large-scale disasters, both natural and manmade (http:// www.smfd.ca.gov; 2004)

50 FIGURE 3.4 - SACRAMENTO METROPOLITAN FIRE DISTRICT

Source: www.smfd.ca.go/org_chart.htm (2004).

3.5 METROPOLITAN POLICE DEPARTMENT

The Metropolitan Police Department is not only a fire fighting service but they are also a public service working in the community. Members of the Metropolitan Police Department (MPD) have been serving the District of Columbia (DC) for well over 100 years. During that time, the MPD has grown in diversity as well as size. In 1802, when the original charter of Washington was approved, police authority was centralised and power was granted to the city itself to establish patrols, impose fines and establish inspection and licensing procedures. Until the creation of the Metropolitan Police Department in 1861, the city had only an auxiliary watch with one captain and 15 policemen. Today, the Metropolitan Police Department includes more than 4,200 members that consist of 3,600 sworn police officers and more than 600 civilian employees. Their leader is Chief Charles H. Ramsey (www.mpdc.gov.am; 2004).

The mission of the MPD is: “ to prevent crime and the fear of crime, as we work with others to build safe and healthy communities throughout the District of Columbia” (www.mpdc.gov/mission; 2004). While serving and protecting the community remains central to the MPD mission, the department is also committed to building safer neighbourhoods in partnership with the community. 51

The mission of the MPD is in line with reasons why police departments do exist: • To respond to and solve criminal incidents, • To respond to and resolve non-criminal incidents, • To identify and solve broader crime and disorder problems. These three functions are the unique responsibility of the police (http:/ www.dcwatch.com/police/980909.htm; 2004).

On May 2, 2004, the Metropolitan Police Department implemented a major restructuring of its Police Service Areas (PSA), a basic building block of community policing in the DC. The goal of the restructuring is to ensure better police services for DC neighborhoods by providing greater flexibility in neighborhood patrols and by aligning PSA more closely with natural neighborhood boundaries. The restructuring plan reduces the number of PSA from 83 to 45, thus creating new boundaries for all of the PSA, as well as new boundaries for some police districts (www.mpdc.gov/psadistricts; 2004).

The new structure gave teams of PSA officers and supervisors greater responsibility for fighting crime and established new ways for police and community to work together to solve all the communities’ problems (http: www.dcwatch.com/police/980909.htm; 2004).

The PSA model represented a good start. The resources devoted to it were inadequate and a major problem was that the rest of the Police Department remained locked in a rigid bureaucratic structure that not only failed to embrace the new operating model; but actually got in the way of how basic police work gets done.

The Metropolitan Police Department took the decision to make the police service more effective. The managers decided to restructure the entire department for three main reasons; • Place more resources in the community, • Focus resources on reducing crime and solving problems in the city's 83 PSA,

52 • Hold managers at every level of the organisation accountable for the quality of policing services within their geographic commands (http:/ www.dcwatch.com/police/980909.htm; 2004).

This actually means that they are putting the Police Department in a much stronger position to take back the city’s neighbourhoods, block by block, community by community and in partnership with residents and other agencies.

The managers were of the opinion that the new organisational structure would enhance their ability to fight crime by: • Increasing police resources in the community. Additional sworn personnel like detectives, investigators and uniformed officers are being moved out of centralised units to assignments in the community, • Eliminating bureaus and cutting bureaucracy. The existing bureau structure created excessive bureaucracy and made coordination across units cumbersome and inefficient. Those four bureaus are being eliminated, replaced by a more logical and streamlined command system which promotes team work, communication and geographic accountability for fighting crime, • Strengthening the PSA. More officers and supervisors are being assigned directly to the PSA. More field resources are being assigned in direct support of the PSA, and PSA managers are being given greater authority and responsibility to build partnerships and solve problems, • Creating full-service police districts. Key operational services such as patrols, investigations, focused missions; traffic and prevention are being placed in the districts and at the district level. These crime-fighting services will be more accessible to the community and of greater support to the PSA, • Establishing geographic accountability throughout the organisation. The new structure organises the districts into three Regional Operations Commands, located in the community and led by a Regional Assistant Chief who is accountable for managing resources and coordinating efforts throughout the region. This creates a complete system of geographic accountability for fighting crime in each PSA, districts and regions, all the way up to the chief of police.

53 • Streamlining the business side of the organisation. Administrative and technical functions are being consolidated under a unified command that can more efficiently provide the tools, training and technology that are critically important to field personnel. • Creating the capacity to continuously improve the Department. A new focus on strategic planning will identify opportunities to improve the organisation and develop innovative strategies and programs that meet the needs of Department personnel. A new quality assurance team will follow up on this work, ensuring compliance with new programs and standards and identifying areas in need of further improvement. (http:/ www.dcwatch.com/police/980909.htm; 2004).

FIGURE 3.5 – PROPOSED NEW STRUCTURE OF METROPOLITAN POLICE DEPARTMENT

CHIEF of POLICE

Executive Assistant Assistant Chief in Charge Chief in Charge of of Corporate Support

Regional Operations Special Services Command Group

Source: http://www.dcwatch.com/police/980909.htm (2004)

The new structure as presented in, figure 3.5, eliminates the four bureaus and creates a more streamlined organisation that promotes teamwork, communication and accountability. The new organisational structure is a significant departure from the way police departments as in Washington D.C.,

54 and across the country have been organised. The new structure represents nothing short of the wholesale transformation of the MPDC, from a bureaucratic, incident-driven agency to a streamlined, customer-driven service organisation and one that is focused on forging alliances to more effectively fight crime and solve problems.

The reorganising of the new structure is not simple, and it will not happen overnight. The new structure will not become effective immediately. The transformation will take place in phases over the next few months and each phase will be carefully planned and implemented. The new structure will have the following advantages: • It will bring the MPDC in line with the way police work gets done, • It will promote a team orientation in fighting crime, • All operational units, all the way up the chain of command, will be organised by geographic area, • All the units will share the same goals and be held accountable for achieving the same results, • The structure will support the MPDC commitment to community policing, • It will bring a wider range of police services closer to the customer, thus encouraging partnerships and problem solving that are key factors to effective community policing, • The new structure will put the MPDC in a position to regain their place as the nation's leading police agency (http:/ www.dcwatch.com/ police/ 980909; 2004).

Community policing does not provide the organisational structure needed to effectively carry out their work. Community policing simply provides the principles or values that guide their efforts and principles such as listening to the community, establishing partnerships, involving other government agencies, etc. In recent years, police departments across the country (including the MPDC) have struggled with trying to implement the philosophy of community policing with the same organisational structures they had used for years. The result is that the MPDC has become fundamentally out of sync with the way work gets done in the organisation (http:/ www.dcwatch.com/police/980909.htm; 2004). 55

The MPDC (like most other police departments) has long relied on a very traditional, vertical organisational structure, with separate bureaus organised around specific functions (patrol services, support investigative services, etcetera). In reality, however, most police work takes place laterally, with work passing across different organisational units. A call to 911 was received by one bureau, dispatched to a unit in another bureau for initial response, assigned to a third bureau for investigation, and then given to a combination of still other units for follow-up, problem solving and prevention. This was time constraining and this structure provided little or no accountability for the end result, and that is to solve the incident or addressing the problem in the quickest time possible (http:/ www.dcwatch.com/police/980909.htm; 2004).

The PSA and the MPDC both operate as an individual unit and each bureau tends to follow its own goals and performance measures, which may or may not reflect the goals and performance measures of the Department as a whole of the community. The communication across bureaus is often haphazard, overly bureaucratic or nonexistent and this is the reason that the traditional police organisation has become incompatible with the way police work needs to get done, especially under the philosophy of community policing (http:/ www.dcwatch.com/police/980909.htm; 2004)

The MPDC needs a new organisational structure that addresses the shortcomings of the traditional model and will replace isolated operational bureaus based on function with more unified operational commands based on geography and geographic accountability. The new structure will promote common goals, objectives and performance measures throughout the organisation, and will establish new levels of managerial accountability based on geography. The new structure will streamline internal communications, and will enable the smooth transition of work from one unit to another (http:/ www.dcwatch.com/police/980909.htm; 2004).

56 FIGURE 3.6 – PROPOSED ROLE STRUCTURE OF METROPOLITAN POLICE DEPARTMENT

Source: http://www/dcwatch.com/police/980909.htm (2004).

The key elements of the MPDC's new structure as presented in figure 3.6, are as follows: ƒ Enhanced PSA. The PSA will be enhanced by the addition of resources (both officers and supervisors) and the expansion of the PSA management team. ƒ Each PSA will be led by a manager who is clearly accountable, 24 hours a day, for the results and behaviour of the members of the PSA team. ƒ The PSA manager will report directly to the District Commander, thus ensuring that other district resources are supporting crime fighting and problem solving in the PSA. ƒ The PSA manager will be assisted by a team of first-line PSA supervisors, who will oversee the work on each shift, assist the PSA manager with special projects and be accessible to the community and responsive to their needs around the clock (http://www/dcwatch.com/police/980909.htm; 2004).

Full-Service Police Districts - The role of the police district is being dramatically expanded, from a narrow focus on patrol to the full range of police services

57 needed to solve crimes and address neighbourhood problems. Each district will include: ƒ Violent Crimes Investigators, ƒ Property Crimes Investigators, ƒ Focused Mission Teams, ƒ Operational Support Team, ƒ Customer Service (http://www/dcwatch.com/police/980909.htm; 2004).

Regional Operations Commands - The seven service police districts are being restructured into three Regional Operations Commands (ROC). They will be identified as follows: ƒ Northern (Districts 2 and 4), ƒ Central (Districts 1, 3 and 5), ƒ Eastern (Districts 6 and 7) (http://www/dcwatch.com/police/980909.htm; 2004).

Each ROC is commanded by a Regional Assistant Chief whose office is located in the community and who has the authority and who is free of the traditional bureaucracy to make decisions and allocate resources to support crime fighting and problem solving throughout the region. To supplement district and PSA efforts, each ROC includes a youth investigations unit, a crime analysis capability and an executive officer who serves as the liaison to the rest of the organisation, including the 911 center. ƒ Special Services. Highly specialised operational units that are citywide in scope are being organised under a new Special Services Group. This group includes those functions, such as emergency response, special events and major narcotics that have unique training, resource and operational needs. Like the Regional Operations Commands, the Special Services Group reports to the Executive Assistant Chief in charge of operations. This ensures coordination between these specialised units and PSA, district and regional operations. ƒ Operations Command. That is to ensure a 24-hour-a-day, department-wide command presence. A new citywide operations command is being established within the Office of the Executive Assistant Chief. Command-

58 level personnel will be available to respond to and oversee major incidents that require their presence at any location in the city, at any hour of the day. ƒ Corporate Support. The Department's critical business functions are unified under a new corporate support structure. Led by an Assistant Chief, this structure streamlines the delivery of services in four key areas: human services, business services, training services and operational support services. Organising these corporate services under a single command helps to ensure greater coordination within these functions and more effective delivery of services to the operational side of the organisation (http:/ www.dcwatch.com/police/980909.htm; 2004).

The role of the police district is being expanded, from a narrow focus on patrol to the broad range of services needed to fight crime and solve problems. Many of these functions will be staffed by personnel reassigned from centralised units. The result is seven full service police districts in which the primary crime- fighting resources of the Department are more accessible to the community through the PSA structure (http:/ www.dcwatch.com/police/980909.htm; 2004).

Most operational services are being organised under three regional commands. This creates geographic accountability for fighting crime throughout the organisation as from the PSA up to the Chief of Police.

A lot of work remains to be done in implementing the new organisational structure. This process will involve identifying new leadership in some areas; defining and re-defining relationships between units; putting in place the physical infrastructure; moving personnel to their new assignments in the community; establishing policies and procedures; training, and more (http:/ www.dcwatch.com/police/980909.htm; 2004)

The new organisational structure goes a long way toward accomplishing all three reasons mentioned to restructure. By itself, however, the new structure does not guarantee success. That will continue to depend on the hard work, dedication and service of members. This new structure is designed to provide the personnel, the front-line officers and supervisors with the tools, the access to resources and the management support they need to do their jobs. Creating

59 an organisation that is more efficient and more responsive to its members’ needs puts the MPDC in a position to fulfil their commitment to make Washington D.C., the safest major city in America, block by block, community by community (http:/ www.dcwatch.com/police/980909.htm; 2004).

3.6 SUMMARY

The different fire fighting services make the point that the EDM Fire Fighting Service is not unique in the way of operating over a large area. By obtaining the geographical organisational structure, a much better and more cost effective service can be provided. The reason why companies lost control over their structure and their bureaucratic costs are escalating, is because they experience problems with the clarity of their structure. The challenge for a company is to manage its structure and control systems so that it can economise on bureaucratic costs and ensure that they match the potential gains from its strategy. The decrease of management cost will also result in a decrease in cost charged to the public for a fire fighting service and it will make the idea of a private fire fighting service or a tax charge for the service real.

To complete the picture, chapter four will analyse the EDM as well as the fire fighting service of all its seven municipalities.

60 Chapter 4

DESIGN OF THE EMPIRICAL STUDY

4.1 INTRODUCTION The previous chapter has focused on how a regional fire fighting service ideally operates. It was of the utmost importance to determine the risk profile and to do a capacity analysis of the EDM area in order to determine what knowledgeable people believe the requirements for effective fire fighting management are.

This chapter addresses the following sub-problems: What viewpoints do knowledgeable people have about an operational structure for a fire fighting service and how does this system operate; and the second sub-problem: Risk profile and capacity assessment analysis of the current fire fighting services in the Eden District Municipality (EDM) area.

To address these two sub-problems, the current situation was analysed by means of questionnaires and by doing research using the internet. Kotler (2000:110) is of the opinion that market researchers have a choice of two main research instruments in collecting data: questionnaires and mechanical devices. In certain sections in this literature study there are adequate guidelines on how to prepare a questionnaire and to analyse the data that have been collected. Laudon and Laudon (2002:284) are of the opinion that rapid access to knowledge is critical to the success of many companies and that the internet will help with this problem. This information is available with blinding speed and the system provides mountains of data from all over the world, which would otherwise be too expensive and too difficult to tap.

4.2 RESEARCH DESIGN The empirical study was utilised to solve the sub-problem: What is the risk profile and capacity analysis of the EDM area? As well as: What viewpoints do knowledgeable people have about an operational structure for a fire fighting service and how does this system operate?

61

The first sub-problems was addressed by administering a questionnaire and the second sub-problem by using the internet as a research tool for benchmarking the different fire services. The information available from the ODS Consultant cc was used to assist in creating a risk assessment as comprehensively as possible.

Johnson and Scholes (2002:174) used the abovementioned method and some others to determine what organisations should be concerned with when improving their performance over time. They argued that, if they did not, they were likely to lose their competitive advantage or even drop out of the market as customer expectations and the performance of competitors were rising. This can be done by looking at the performance of organisations in the same industry or sector against a set of agreed performance indicators.

4.3 DESIGN AND STRUCTURE OF THE QUESTIONNAIRE The aim of any data collection effort is to obtain good quality information. This information must be timely, accurate and relevant (Wegner, 2001:2). Kotler (2000:110) states that a questionnaire is, because of its flexibility, by far the most common used instrument for collecting primary data. A questionnaire needs to be carefully developed, tested and debugged. The design of a questionnaire is of utmost importance to ensure that the correct research questions are addressed (Wegner, 2001:17). This collected data must then be analysed to make a meaningful decision.

Due to the nature of the business for this research a structured interview was used. According to Leedy and Ormrod (2001:196), a structured interview is where a researcher asks a standard set of questions and no more. An additional requirement for this study was to ease the operation of data collection, thus the questionnaire was used in a telephone interview after forwarding the said questionnaire to the respondent.

A questionnaire should consist of three sections: • The administrative section – used to record the identity and details of the respondent and also where the interview took place.

62 • The demographic section – describes the respondent by a number of demographic characteristics such as gender, company size or market sector. • The information sought – this makes up the major part of the questionnaire and consists of all the questions which will extract data from respondents to address the research objective (Wegner, 2001:19).

Part of the empirical study and the subsequent questionnaire is a sampling plan. Such a sampling plan calls for three decisions: • Sampling unit – who is to be surveyed? Clearly identify the target population that will be sampled. • Sample size – how many people should be surveyed? Large samples give more reliable results than small samples. • Sampling procedure – how should the respondents be chosen? A sample is selected on a probability or a non-probability basis (Kotler, 2000:112).

Because of the limited size of the sample used in this study the non-probability sampling method was used and consisted of the following three methods: • Convenience sample – the researcher selected the most accessible population members. • Judgment sample – the researcher selected population members who were good prospects for accurate information. • Quota sample – the researcher found and interviewed a prescribed number of people in each of several categories (Kotler, 2000:112).

The structure of the questionnaire for this study was based on the following requirements for data collection: • The emergency calls attended to annually by the different local authorities. • The number of fire stations, sub-stations and control rooms in the EDM area. • The total municipal operating expenditure and the total fire fighting expenditure of each municipality. • Manpower profile.

An extract of the questions in the questionnaire is presented in Table 3.2. A copy of the questionnaire is presented in Annexure A to C. The purpose of the 63 questionnaire and the type of questions asked with specific reference to the different Municipalities were to determine specific information in creating a holistic picture of each fire fighting service in the EDM area.

TABLE 4.1: An Extract from the Questionnaire Date Authority Official

FIRES Number of Formal/informal dwellings/ &field fires Storage Industry Transport Other RESCUE Transport accident Environmental (mountains) not sea rescues HAZMAT(chemical fires or emergencies)

The information in Table 4.1 determined where the “hot spots” were and what type of service was required: a fire fighting service or a rescue service. This information also indicates the number of fire fighters required.

TABLE 4.2: An Extract from the Questionnaire (continued) Detail Number of How many fire stations How many sub-stations How many satellite stations How many control centers

The data in Table 4.2 would provide information on where all the fire stations are located in the different areas.

64 TABLE 4.3: An Extract from the Questionnaire (continued) DETAIL / DESCRIPTION Amount Municipal Total Operating Expenditure -

2002/2003 Fire Fighting Operating Expenditure -

2002/2003 Municipal Total Operating Expenditure -

2003/2004 Fire Fighting Operating Expenditure -

2003/2004 Source:

Table 4.3: The data would reveal the total operating expenditure of a municipality compared with the fire fighting expenditure of the same municipality.

TABLE 4.4: An Extract from the Questionnaire (continued)

Full time Staff Quantity Qualified/Trained leadership Unqualified and untrained leadership Qualified/ trained fire-fighters

Unqualified/untrained fire-fighters

Part time Staff, Reservists and Volunteers

Qualified/trained leadership

Unqualified and untrained leadership

Qualified/trained fire-fighters

Unqualified/untrained fire-fighters

Table 4.4: Data would determine the skills of and the number of fire fighters in the EDM area.

4.3.1 Administration of the questionnaire The questionnaire was taken to the seven Municipalities in the EDM area. At certain Municipalities the financial department could provide the researcher with all the answers. The questions were asked by telephone interviewing. 65 According to Kotler (2001:112), telephone interviewing is the best method for gathering information quickly, and the interviewer is also able to clarify the questions and therefore the response rate is higher than when mailing the questionnaires.

The researcher assisted in all of these interviews. The aim of these interviews was to obtain information as accurate as possible that was about the fire fighting services in the EDM area. After interviewing all seven municipalities, the researcher processed the completed questionnaires.

4.3.2 Variables in questionnaire Wegner (2001:3) states that a variable is any characteristic that is being measured or observed and that such a variable can take on different (random) values at each observation or measurement and is called a random variable.

The aim of this questionnaire was to determine: What is the risk profile and capacity analysis of the EDM area? As well as: What viewpoints do knowledgeable people have about an operational structure for a fire fighting service and how does this structure operate?

In this questionnaire there were a number of random variables such as: • Emergency calls attended annually o Fires o Rescue o Hazmat • The number of fire stations, sub-stations and control rooms • Manpower profile o Qualified full time staff o Unqualified full time staff o Part time staff, reservists and volunteers • Total Municipal operating expenditure • Total Municipal fire fighting operating expenditure

66 Data on these above mentioned variables assisted the researcher in determining the assessment analysis of the fire fighting services in the EDM area.

4.4 SUMMARY The questionnaire was the selected tool to determine: What is the risk profile and capacity analysis of the EDM area? As well as: What viewpoints do knowledgeable people have about an operational structure for a fire fighting service and how does this service operate?

Data obtained also assisted in determining in which organisational structure would fit the fire services for the EDM area the best. The benchmarking against other fire fighting service would help in designing the best operational structure using all the possible resources.

Chapter 5 will reflect on the results obtained from the questionnaire.

67 CHAPTER 5

RESULTS AND ANALYSIS OF THE EMPIRICAL STUDY

5.1 INTRODUCTION Slack, Chambers and Johnston (2001:601) state that benchmarking is one approach that some companies can use to compare their operations with those of other companies. Benchmarking is no longer restricted to only manufacturing operations but also confined to services such as hospital and banks (Slack et al., 2001:602).

The practice of benchmarking, where a comparison is made between an organisation’s operation practices, and their way of doing things and those adopted by other operations, was discussed in chapter three. The objective was to see whether anything could be learnt from practices adopted by other organisations, (Slack et al., (2001:604).

Slack et al. (2001:604) state that a prerequisite for benchmarking success is to understand thoroughly your own processes and also to look at what is already available. Therefore it is very important to know what the area looks like, how many people are staying in the EDM area, what resources they have and what the total expenditure of it operation is.

5.2 ANALYSIS OF EMERGENCY CALLS ATTENDED The completion of the questionnaire presented an opportunity to determine where the high risk areas are. Table 5.1 presents data about all the call outs in a year in the three major fire fighting services as well as in the EDM area. This information was obtained by a telephonic questionnaire. A copy of the questionnaire is presented in Annexure A.

68 TABLE 5.1 – EMERGENCY CALLS ATTENDED ANNUALLY EMERGENCY CALLS Mossel ATTENDED George Oudtshoorn EDM Bay ANNUALLY FIRES Formal/informal 473 360 86 35 dwellings and field fires Storage 2 Industry 1 Transport 19 22 8 Other 3 3 RESCUE Transport accident 150 - 17 7 Environmental 30 - 1 HAZMAT TOTAL CALLS 678 395 111 42 Source (Personal A. Van H. Botha C. Marais H..Krapohl interviews) Rensburg

Incidents in the rural areas are not always reported; therefore the statistics may generally be understated. The statistics of the fire fighting services of Knysna and Plettenberg Bay (Bitou) are not shown in Table 5.1, but it is expected that their statistics are nearly the same as those in Table 5.1.

Langeberg Municipality has numerous towns and coastal settlements that are widely fragmented by distance and topography. Risks are predominantly small and the municipality performs a rudimentary, ad hoc structural fire fighting function but only has the capacity to mitigate small to medium sized veld fires.

Table 5.1 shows that Mossel Bay attended more emergency calls than George, that has a larger population. As shown per Table 6.3, Mossel Bay includes a large quantity of towns with high risk areas. The climate of Mossel Bay, which is “wet”, is also drier than the climate of George. The following are high risk area identified in EDM, George and Mossel Bay:

69 EDM (including Kannaland and the DMA) o plantations (Haarlem), o filling stations, o LPG gas supply establishments, o high buildings, o motor vehicle accidents, o hazardous substance emergencies involving motor transport and large structure fires.

i. Mossel Bay o major hazardous installations represented by PetroSA and the Voorbaai tank farm, o environmental pollution of the sea and rivers, o Wolwedans Dam, o accidents and hazardous substances associated with commercial transport, o veld and forest fires, o the sawmill at Great Brak River, o passengers and hazardous substances associated with rail transport, o aircraft accidents, o swift water and cliff rescues, o structural and informal settlement fires and rescues, o rescues after heavy and light motor vehicle accidents, o Mossel Bay harbour. ii. George o George airport and aircraft accidents, o shopping centres, o filling stations and LPG gas outlets, o hotels, guest lodges and holiday resorts, o thatched dwellings (Wilderness), o wooden houses (Victoria Bay), o sawmills (Dieprivier), o squatter camp (Wilderness Heights), informal dwellings (Touwsranten, Kleinkrantz) o electrical transformer stations,

70 o institutional buildings and schools.

5.3 ANALYSIS OF QUANTITY OF FIRE STATIONS, SUB-STATIONS AND CONTROL CENTRES The purpose of these questions was to determine where in the EDM area the stations, sub-stations and control centres are situated and the quantity of each. In designing a new operational structure it is important to know the number of stations and where they are situated due to the cost factor in creating new stations. Some of the stations are already situated on the main routes of the area.

Table 5.2 shows the quantity of fire stations, sub-stations and control centres in the EDM area:

TABLE 5.2 – FIRE STATIONS, SUB-STATIONS AND CONTROL ROOMS EDM Bitou George Knysna Langeberg Mossel Bay Oudtshoorn

Fire Stations 0 1 1 1 1 1 1 Sub-stations 0 1 0 0 1 1 2 Satellite 0 0 0 0 2 1 6 Control Centres 0 1 1 1 1 1 1

Source: Otto: 2004

Due to the responsibility of the EDM to provide a full range of fire fighting services in the DMA and in the Kannaland Municipality as well as for combating veld and mountain fires in all local municipalities, they have satellite stations in the area. Control centers with call-taking facilities are located in all centres, except in Langeberg, and are manned on a 24-hour basis by full time staff. The Oudtshoorn centre does not appear to be manned at all times. Fire stations are mainly situated in the different main towns.

71 5.4 ANALYSIS OF FIRE SERVICES EXPENDITURE The fire fighting services are the “poor man” of the municipalities due to the fact that very little capital expenditure has been channelled to the fire services for several years. Table 5.3 shows the total operating expenditure of a municipality with the fire fighting expenditure of the same municipality.

TABLE 5.3 – MUNICIPAL TOTAL OPERATING EXPENDITURE AND FIRE SERVICES OPERATING EXPENDITURE Municipal Municipal Total Fire Fighting Fire Fighting Total Operating Operating Operating Code Municipality Operating Expenditure Expenditure Expenditure Expenditure 2002/2003 2002/2003 2003/2004 2003/2004 WC041 Kannaland - - - - WC042 Langeberg - 100 000 - 108 000 WC043 Mossel Bay 156 154 822 3 798 757 169 147 557 3 954 929 WC044 George 257 800 000 2 600 000 312 000 000 2 960 000 WC045 Oudtshoorn 87 446 135 264 454 101 748 206 277 913 WC047 Bitou 76 173 826 1 394 165 86 440 859 2 508 240 WC048 Knysna 137 862 750 2 366 130 158 692 280 2 649 100 DC4 Eden District 38 601 693 3 873 578 44 579 933 4 299 673 Source: WC042 (Maddison:2004) WC043 (Botha:2004) WC044 (Marais:2004) WC045 (Krapohl:2004) WC047 (Burger:2004) WC048 (Nortier:2004) DC4 (Zeelie:2004)

Table 5.3 indicates that the EDM fire fighting service covers 10% of the total expenditure in 2003/2004. The EDM is also responsible for fire fighting services in the rural areas, Kannaland and Langeberg.

The fire service is labour intensive and as may be expected, staff costs that include allowances for part-time staff, uniforms and protective clothing, generally account for between 60% and 85% (average 75%) of the total operating budget of the service. As the fire services are subsidised services,

72 any improvements or expansion of these services will have important implications for municipal operating budgets and will directly impact on rates.

It will be equally significant to note the impact that future capital charges will have on operating budgets due to the need for capitalisation and recapitalisation of fire services inventory.

By using the tables above an estimation on conversion costs for existing municipal premises into sub-stations or satellite stations may be in the order of R250 000 to R300 000 each. The general operating costs, excluding staff costs per station, may be in the order of between R90 000 and R100 000 per annum.

With raising external costs many operating expenditures may have been effectively reduced. The fire fighting services are mainly funded by revenue in the form of taxes or the services are charged by tariffs and accounts have been sent out to clients. The payment of these accounts is very slow due to the fact that some accounts must be paid by insurance companies and others by the person himself. The public are not educated or mind shifted to acknowledge that they should pay for a fire fighting service.

5.5 ANALYSIS OF MANPOWER The manpower of a fire fighting service of a municipality differs from other municipal departments and is most often overlooked by decision makers. The fire services are provided at full operational capacity, 24 hours per day and seven days per week. Depending on the particular shift system employed and when leave and illness is taken into account, this therefore translates into an available or on-duty complement of (less than) 25 percent or 33 percent of the total manpower reflected on the staff establishment of the municipality.

The purpose of these questions asked in the questionnaire was to emphasize the factors relating to fire fighting effectiveness. It was necessary to know if there is suitable leadership and what the levels of knowledge and skills in management are. The main indicators in this regard are qualifications and the amount and level(s) of training received. If levels of training provide the criterion for manpower effectiveness, there should be no distinction between full-time

73 staff, part-time staff and volunteers. The reliability of volunteers/reservists reporting for duty is generally recognised to be a planning and organisational problem.

TABLE 5.4 – EDM OPERATIONAL MANPOWER PROFILE

EDM Operational Manpower Profile (excl CFO) (training relates to formal training only) Langeberg Municipality Mossel Bay Municipality George Municipality Oudtshoorn Municipality Knysna Municipality Municipality Bitou EDM Full time Staff Qualified/Trained leadership 0 3 2 0 0 2 4

Unqualified and untrained leadership 0 0 0 0 0 0 0

Qualified/ trained fire fighters 0 22 4 0 3 5 6

Unqualified/untrained fire fighters 0 1 6 1 13 0 0 Part time Staff, Reservists and

Volunteers

Qualified/trained leadership 0 0 0 0 0 0 0

Unqualified and untrained leadership 0 0 0 0 0 0 0

Qualified/trained fire fighters 0 0 0 0 0 0 0

Unqualified/untrained fire fighters 9 11 0 10 28 15 12

Source: Otto:2004

Table 5.4 indicates that the majority of full-time fire fighters in the district only have skills-based training. Operational safety and effectiveness require that officers are also equipped with knowledge-based qualifications. The EDM area does not have any dedicated fire prevention officers and no operational capacity to assist in this function (Otto, personal communication, 2004).

The standard number of crew members for all structural fire fighting vehicles is four. Due to manpower constraints, there may be significant differences in crewing configurations of fire fighting vehicles that may generally vary between two and four members per vehicle. Table 5.4 indicates that there are a total of seventy two full-time fire fighters and 29 percent are not qualified or trained. 74

Plettenberg Bay, Knysna, George and Mossel Bay and the District Municipality each has a small core of full-time fire staff with the remainder of the complement being made up of part-time staff. Langeberg, Kannaland and Oudtshoorn Municipalities have very basic part-time staffing arrangements. Due to the fact that some of the Municipalities are not providing fire cover to all risks located within their boundaries, the very limited District Municipality resources must often respond over excessive distances to deal with emergencies. All the part-time or volunteer workers are untrained.

5.6 CONCLUSION The fire services in the rural areas are generally under resourced and the man- power levels are very low. The shortage in resources may result in reduced effectiveness in all level risks of fires. Local municipalities are extremely fragmented by both geography and distance that will limit the utility and effectiveness of operation agreements. Due to all the facts, it is very important that all functions are standardised and the service standards determined.

Chapter 6 addresses the risk profile and capacity assessment analysis of the current fire services in the EDM area.

75 CHAPTER 6

RISK PROFILE AND CAPACITY ANALYSIS

6.1 INTRODUCTION Hellriegel et al. (2001:150) define risk as the condition under which individuals can define a problem, specify the probability of certain events, identify alternative solutions and state the probability of each solution leading to the desired result.

The definition of risk points out that risk includes the concept of acceptable risk, usually based on low probability evaluations and even sacrificial policy. When decisions are taken on such a basis, albeit rational, it would be important that such decisions are communicated to the affected parties or communities. In these terms it would appear reasonable for a municipality to provide emergency services that would reflect the general risks within a specified area. Extraordinary risks would therefore be treated in terms of “the polluter pays”- principle by which special measures may be imposed by the relevant parties (ODS Consultants; 2004:29).

Risk is therefore pervasive and cannot be avoided. The nature and the cause of the risk may change over time, as the extent of the damage or reward that may result may also change (ODS Consultants; 2004:9).

This chapter addresses the following sub-problem: Risk profile and capacity assessment analysis of the current fire services in the EDM area. Part of this investigation included a risk profile and risk analysis. This analysis was done by: • Interviews with fire services management officials, • Personal site and area inspection and observations, • Local information bureaus and publications, • Department of Surveys and local maps, • Internet research.

76 Slack et al. (2001:604) state that a prerequisite for benchmarking success in an organisation is to understand thoroughly that organisation’s processes and also to look at what is already available. Therefore it is very important to know what the area looks like, how many people are staying in the EDM area, what resources they have and what the climate and the infrastructure are.

6.2 CLIMATE The EDM area has a moderate climate with rainfall occurring throughout the year. The Little Karoo experiences the least rainfall in the EDM area with annual rainfall of less than 400mm per year. The average rainfall of the Outeniqua region is between 700mm and 1200mm per year. The average temperature for coastal areas is between 14.6°C and 20.7°C. The Karoo is the warmest region experiencing temperature variances of between 15°C and 17°C. Winds are predominantly south-east and south-west (www.routes.co.za/nature/ecoregions/fynbosmountains; 2005)

The western area experiences more wind than the central and eastern regions. The influence of the sea results in moderate temperature ranges along the coastal zone and coastal platform. Summer berg winds result in very hot periods which, in the absence of rainfall, increase the risk and occurrence of mountain and field fires throughout the region. Lower temperatures are experienced at increased altitude in the mountains (Van Wyk, personal communication, 2004).

The risk of flash floods occurs in the valleys that cut deeply through the coastal plains throughout the region. There is also a risk of general flooding throughout the district; however, the low-lying eastern regions and especially the lake area around Sedgefield are especially susceptible. Flooding generally contributes to various forms of environmental degradation (Van Wyk, personal communication, 2004).

Coastal and low lying areas in the central and eastern regions experience dense fog and mist during late autumn and early winter (May/June), posing a high risk of road accidents from the vicinity of Mossel Bay to Plettenberg Bay (Van Wyk, personal communication, 2004).

77 In terms of the disaster management plan, it is very important to do climate monitoring and the provision of early warnings to relevant sectors and/or population groupings (Otto, personal Communications, 2004).

6.3 GEOPHYSICAL PROFILE

The geophysical profile of the EDM area has three characteristics namely the coastal platform, upper plateaux and mountains.

6.3.1 Coastal Platform The coastal platform varies from flat to undulating with a width of about 40km in the west in the Langeberg region to about five kilometres in the central and eastern areas of the district. The coastal platform terminates at the foothills of the mountain ranges and averages 230m in altitude. The main rivers and their tributaries and deeply incised valleys partition and compartmentalise this platform limiting road access across the plain and to coastal settlements. Most valleys are densely vegetated in contrast to the plateau.

The entire length of the southern boundary of the Eden District comprises coastline and the river mouths, estuaries and lagoons support an established and growing marine culture industry comprising mussel, oyster, abalone and seaweed production.

Maritime accidents and disasters fall outside the jurisdiction of the local Municipalities; local authorities are nonetheless often exposed to the consequences of such events. The National Sea Rescue Institute is responsible for all maritime accidents.

6.3.2 Upper Plateaux These plateaux, averaging an altitude of about 400m, form the Klein Karoo and occur inland between the Outeniqua and Swartberg mountains. The Kannaland plateau in the west represents a sub-region of the Klein Karoo and is separated from the Oudhtshoorn region by the Rooiberge.

78 6.3.3 Mountains Foothills and mountain ranges that traverse the area from west to east characterise the EDM and account for the greatest percentage of the total land area. The Langeberg and Outeniqua Mountain ranges form a natural barrier, separating the coastal region from the Little Karoo, with the Klein Swartberg, Groot Swartberg and Kouga Mountains generally forming the northern boundary of the district. The Langkloof Mountains in the east separate the narrow coastal plain from the mountainous interior.

The Rooiberge in the west form an intermediate mountain range while the Kammanassie and Kouga Mountains east of Oudtshoorn define the eastern geophysical boundary of the Klein Karoo. The lower reaches of mountains are variously wooded or populated by fynbos.

6.3.4 Vegetation Invasive alien vegetation of various exotic types is found throughout the district, occurring with indigenous plant types and species. Indigenous vegetation includes fynbos species, Karoo shrub and Afro-montane forest. Fynbos includes mountain fynbos, coastal fynbos and renosterveld that occur from mountainous regions through coastal plains to the marine interface (www.plantzaafrica.com/vegetation; 2005)

Various types of thicket are found where there is fire protection and specifically in disturbed ground, dry river valleys and interspersed with fynbos in dune sands along the coast. The regional biosphere is variously described as being threatened and endangered.

The EDM area has several important conservation areas and National Parks occur throughout and including all local municipal areas; the main ones being: • Gamka Mountain Nature Reserve 10 428 ha • Goukamma Nature and Marine Reserve 2 500 ha • Grootvadersbosch Nature Reserve 250 ha • Boosmansbos Wilderness Area 15 202 ha • Baviaanskloof Wilderness Area 15 321 ha • Kammanassie Nature Reserve 49 430 ha 79 • Keurbooms River Nature Reserve 740 ha • Outeniqua Nature Reserve 38 000 ha • Robberg Nature and Marine Reserve 1 897 ha • Swartberg Nature Reserve 121 000 ha • Gamkapoort Nature Reserve 8 000 ha • Doring Rivier Wilderness Area 12 519 ha • Rooiberg Nature Reserve 12 839 ha • Knysna National Lake Area 15 000 ha • Wilderness National Park 2 500 ha • Tsitsikamma National Park 10 600 ha (www.capenature.org.za; 2005).

Afro-montane forests occur in the south-eastern coastal part of the district from George to Bitou (Plettenberg Bay) and cover about 60 500ha, with the greatest consolidation occurring near Knysna. The forests with their high humidity, along with their herbaceous plant layers and fire tolerant fringes, rarely burn, except in very hot and windy conditions (www.plantzaafrica.com/vegetation; 2005). Table 6.1 shows the predominant regional vegetation features.

TABLE 6.1 – REGIONAL VEGETATION FEATURES. Region Vegetation features Langeberg Plantations, grassland, thicket and bush land, shrub land, low fynbos and farmland. Mossel Bay Shrub land, low fynbos and farmland George Forest,plantation and farmland Knysna Forest, plantation and farmland Bitou Forest, plantation and farmland Oudtshoorn Shrub land and low fynbos, grassland and farmland Kannaland Grassland, shrub land and low fynbos and farmland DMA Grassland, shrub land and low fynbos, plantation and farmland Source: ODS Consultants (2004:17).

Seasonal fires in natural vegetation and open grazing land are predictable with a high percentage being attributed to the human element. The high percentage

80 of exotic species has a tendency of achieving higher than normal combustion temperatures, greater flame heights and the rapid propagation of fires even in otherwise resistant plant species (Van Wyk, personal interview, 2004).

Forestry and timber plantations are the predominant coverage in the area from George to Knysna. Plantations in the Outeniqua region cover about 80 000ha with substantial coverage occurring around Uniondale and in the foothills of the Langeberg Mountains. The weeding out of alien vegetation through the “Working for Water” programme has resulted in the dense accumulation of dead combustible vegetation in many mountain catchments areas, adding to the localised intensity of many fires (Van Wyk, personal interview, 2004).

6.4 INFRASTRUCTURE The Eden District Municipality covers a vast area with seven large municipalities to consider and to work with. Links are created not via networks, but still in the old way through hundreds of meetings. The opportunity is there, but to convince people to redraw their mental maps will be a mammoth task.

Table 6.2 presents the demographics of the EDM area.

TABLE 6.2 – THE EDM DEMOGRAPHICS

% Formal % Informal Total Total % of Total Dwellings of Dwellings of Population Formal Informal Population Households Total Total Dwellings Dwellings Households Households Bitou 29 184 6,42 8 759 7 156 81,7 1 604 18,31 DMA 14 597 3,21 3 528 3 454 97,9 71 2,01 George 135 415 29,77 35 525 29 247 82,3 6 245 17,58 Kannaland 23 970 5,27 6 062 5 877 97,2 188 3,10 Knysna 51 472 11,31 14 731 10 931 74,2 3 792 25,74 Langeberg 44 104 9,69 12 510 11 891 98,4 618 4,94 Mossel Bay 71 494 15,72 20 059 17 204 85,7 2 851 14,21 Oudtshoorn 84 685 18,62 18 123 16 538 91,2 1 585 8,75 TOTAL 454 921 100 119 307 102 298 85,7 16 954 14,21 Source: www.statssa.gov.za/census01 (2005).

The following are important points relating to district demographics:

81 • Almost 57% of the total population and about 66% of all dwellings (12% of which are informal) are found within a ten-kilometre belt from the coast on a narrow coastal plateau, stretching from Mossel Bay to Bitou, • The vast majority of the population is urbanised. • Over 85% of all informal dwellings in the EDM area is found in the Mossel Bay to Bitou areas. • The region experiences a high average of in-migration and growth rates. • George also represents the industrial, commercial and institutional hub of the district. • The region from Mossel Bay to Bitou also provides a similar percentage of essential services and infrastructure including roads, bridges, energy distribution, communications, water reticulation, sewage treatment and state, municipal and private institutions. • The municipalities of George (29,7%) and Mossel Bay (15,7%) have more than 45% of the district population and possess the majority and greatest diversity of commercial, industrial and manufacturing industries in the district. • Only 27% (Oudtshoorn 18,6%) of the total EDM population may be found north of the Langeberg and Outeniqua Mountains. • The Langeberg Municipality, only accommodates about 9,7% of the total population. • Rural population densities are generally low with the majority of the rural population and rural settlements being directly associated with farming and forestry activities in the region. • The rural population in Bitou, however, makes up approximately 20% of the total population. • Within the ten-kilometre belt from the coast are numerous coastal resorts which primarily provide tourist accommodation and recreational facilities. The towns provide smaller scale institutional, commercial, retail, educational and social structures, infrastructure and services. • The urban distribution within local municipalities and within the EDM is very fragmented. • Infrastructure in terms of fire risk analysis primarily includes, but is not limited, to all built structures, and includes built structures that accommodate

82 the population as well as those that support and propagate human endeavour, e.g. industries. • Building structures are centred in towns.

It is important to note that all coastal municipalities experience a substantial influx of tourists and visitors during peak season. Figures generally describe this population category in terms of total seasonal turnover (for example Mossel Bay, 400 000). It would be difficult to assess actual daily or weekly averages for each town or resort; however, this would be significant and in many instances could more than double the resident population. Similarly, seasonal and out-of- season promotional events provide exceptional influxes that inflate local populations by similar proportions. Most notably, these include golfing competitions in Bitou and George, the Knysna Oyster Festival, the Diaz Festival and “Klein Karoo Nasionale Kunstefees” (KKNK).

The probability of fires and other emergencies in certain areas in the EDM district is high. The lack of capacity to efficiently and effectively deal with such emergencies presents a problem.

FIGURE 6.1 – MAP OF THE EDM AREA

Map source – www.demarcation.org.za 83 The City of George and all main towns and rural settlements in the Eden District are listed hereunder.

TABLE 6.3 - MAIN URBAN CENTRES AND SETTLEMENTS IN THE EDM Municipality Cities, Towns and Settlements Kannaland Ladismith, Calitzdorp, Droëvlei, Van Wyksdorp, Zoar Langeberg Albertinia, Gouritzmond, Heidelberg, Riversdal, Slang River, Still Bay, Witsand/Fort Beaufort Mossel Bay Friemersheim, Herbertsdale, Great Brak River, Mossel Bay - coastal resorts: Vlees Bay, Boggoms Bay, Dana Bay, Hartenbos, Little Brak River George George, Glentana, Herold's Bay, Victoria Bay, Herold, Wilderness Oudtshoorn De Rust/Blomnek, Dysseldorp, Oudtshoorn Knysna Knysna, Sedgefield – coastal resorts – Brenton-on-Sea, Brenton-on- Lake, Buffelo Bay, Noetzie Bitou Keurboomstrand, Natures Valley, Plettenberg Bay DMA Uniondale, Haarlem, Noll Source: www.demarcation.org.za/ward_delimitation/FINAL/wc/munic(2005)

The listings in Table 6.3 with the map in Figure 6.1 are used as a point of reference in future discussions. The name of the municipality will be used as the main reference.

6.5 ROADS AND TRANSPORTATION The roads network that dissects the EDM area is dictated and limited by mountains and deep river valleys. The roads network inland to Kannaland, Oudtshoorn and the Demarcation Area (DMA) is restricted to a few passes through mountain ranges. The normal road distances between major population centres and between municipalities vary between forty kilometres to over ninety kilometres. The roads network in the rural are is poorly connected to main roads and other minor roads. The municipalities in the area are extremely fragmented with numerous isolated and potentially vulnerable rural and coastal communities.

84 The N2-highway is the main link between municipalities along the cost and coastal plateau. The N2 is also the important transit routé to the Eastern Cape and to the Cape Town Metropolitan area. Other important routes are the N12 from George to Beaufort West via Oudtshoorn, the N9 through Uniondale to Graaff-Reinet and the R62 from Oudtshoorn to Montagu. Table 6.4 indicates the distances between the various towns.

TABLE 6.4 - TOWN DISTRIBUTION AND TRAVEL DISTANCES IN THE EDM Town Nearest Town Kilometres Heidelberg Witsand 38km Riversdal 29km Riversdal Stilbaai 40 – 42km Vermaaklikheid 44km Albertinia 39km Slang River 64km Gouritzmond 76km Ladismith 99km Albertinia Gouritzmond 40km Mossel Bay 46km Mossel Bay Hartenbos 10km Groot Brak River 24km Vleesbaai 43km George 45km Oudtshoorn 96km George Herold's Bay 15km Pacaltsdorp 12km Herold 30km Wilderness 15km Sedgefield 38km Knysna 60km Oudtshoorn 61km Oudtshoorn Dysseldorp 24km De Rust 35km Calitzdorp 53km Ladismith 99km Ladismith Zoar 19km Calitzdorp 46km Knysna Sedgefield 22km – Karatara 18km Karatara 28km

85 Plettenberg Bay 39km Plettenberg Bay Wittedrift 10km The Crags 11km Knysna 39km

Source: www.routes.co.za/wc (2005)

Road distances between the towns of adjoining municipalities along the coastal zone average over 40km and between adjoining municipalities exceed 53km. Distances from coastal towns to inland urban centres average 82km (including the negotiation of mountain passes). All roads carry private vehicles, public passenger transport and commercial vehicles. Cargos may include raw industrial materials, household and commercial goods, agricultural produce, livestock and processed and manufactured products and goods. Hazardous materials are also transported. The proximity of mountains, mountain passes and limited bypass alternatives make the limited transportation arteries extremely vulnerable when disruption occurs in any emergency situation.

6.6 RAIL TRANSPORT There is a single route that enters the district out of Worcester via Swellendam and continues along the coastal plateau through all the main towns to George and Knysna. A line passes from George over the Outeniqua Mountains to Oudtshoorn where it branches westwards to Calitzdorp and eastwards to the Eastern Cape Province. The coastal line between George and Knysna includes special tourist train services. A steam train service is alleged to be the primary cause of veld fires along the coast during the dry season (ODS Consultants; 2004:26).

6.7 AIRPORTS The George Airport is the largest commercial airport in the region and handles both passengers and freight. There is also a commercial airport in Plettenberg Bay and airstrips in Oudtshoorn and Riversdal (ODS Consultants; 2004:26).

Airports pose variable accident risks to populations in their immediate surrounds and by aircraft overflights. Commercial aircraft pass over the entire district. Accidents pose life and injury risks to passengers and the local community as 86 well as the possibility of damage to building structures and infrastructure with secondary environmental pollution risks. Hazardous freight and aircraft fuel poses serious risks of fire and environmental pollution. Airport risks include tanker vehicles with aviation fuel and the possibility of quantities of pesticides during seasonally determined crop spraying (ODS Consultants; 2004:26).

The transportation of aviation fuels by road is very risky and can cause serious emergencies.

6.8 FUNCTIONAL ASSESSMENT OF THE FIRE SERVICES AND GEOGRAPHICAL SERVICE PROFILE The evaluation of the capacity of a fire service is very important due to the fact that it provides an overview of the functions performed by the fire services in the district. This investigation evaluated their actual ability to effectively perform the relevant functions to acceptable standards. Capacity in this instance relates to the required manpower, training, skills, vehicles, machinery, equipment, tools and infrastructural capacity to efficiently and effectively prevent, mitigate, control and deal with all emergencies (ODS Consultants; 2004:32). The following table identifies only the primary activities done by a fire service.

TABLE 6.5 – ASSESSMENT OF FUNCTIONAL EFFECTIVENESS

ASSESSMENT OF FUNCTIONAL EFFECTIVENESS FOR THE MAIN URBAN AREA ONLY

Langeberg Municipality Municipality Langeberg Municipality Mossel Bay George Municipality Municipality Oudtshoorn Knysna Municipality Bitou Municipality Municipality Kannaland DMA Fire Risk Categories (fire fighting) Category A – Extensive CBDs commercial and industrial X2 2 1 X XXX areas Category B – Limited CBDs commercial and industrial 1 2 2 1 2 2 1 2 areas Category C – Conventional residential areas 1 3 3 2 3 3 2 3 Category D – Remote rural areas of limited buildings 0 1 1 1 1 1 1 2 Category E – Special risks (over and above predominant 0 1 1 0 1 1 0 1 87 risks) Veld and mountain fires 0 2 2 2 2 2 2 3 Fire safety Building plans scrutiny 0 3 3 0 3 3 0 0 Building construction inspections 0 3 2 0 2 3 0 0 Rational design appraisal 0 3 2 0 2 2 0 0 Fire prevention inspections 0 2 2 1 2 2 0 0 Major hazard assessments and approvals 0 3 3 0 3 3 0 0 Rescue Fire-related rescue 0 3 3 2 3 3 3 3 Automotive and industrial extrication 0 3 0 2 2 2 2 2 High angle rescue 0 3 0 0 1 1 1 1 Environmental rescue 0 2 0 0 2 2 2 2 Confined space and collapse rescue 0 2 0 0 0 0 0 0

TABLE 6.6 – RESOURCE ASSESSMENT FOR STRUCTURE FIRES

RESOURCE ASSESSMENT FOR STRUCTURE FIRES IN THE MAIN URBAN AREA ONLY

Due to inadequate resources throughout, all other urban centres and rural areas in local municipalities were not scored Langeberg Municipality Municipality Langeberg Municipality Mossel Bay George Municipality Municipality Oudtshoorn Knysna Municipality Bitou Municipality Municipality Kannaland DMA Structural fire-fighting vehicles 1 2 3 2 2 2 1 3 Veld fire-fighting vehicles 1 2 2 1 2 3 3 3 General fire-fighting equipment 0 3 3 2 3 3 1 2 Flammable liquid fire-fighting equipment 0 4 1 1 4 3 0 1 Rescue vehicles 0 2 0 0 0 2 0 0 Accident rescue equipment 0 3 0 1 3 3 1 3 Environmental rescue equipment 0 2 0 0 2 2 0 1 HAZMAT equipment 0 3 1 0 3 3 0 2 Protective clothing and safety equipment 1 3 3 3 3 3 3 3 Breathing apparatus 1 3 3 3 4 3 3 3 Trained leadership 0 3 2 0 2 2 1 2 Trained manpower 0 3 2 0 2 2 2 2 Structural/specialist fire fighting average 1 3 3 1 3 3 2 2 Accident/environmental rescue average 0 3 0 2 3 3 2 2 Hazardous substances average 0 3 3 0 3 3 2 2 Note: The legend 88 X - not applicable 0 - <10% effectiveness 1 - 10 – 25% effectiveness 2 - 26 – 50% effectiveness 3 - 51 – 75% effectiveness 4 - >75% effectiveness Source: ODS Consultants (2004:33)

With reference to Tables 6.5 and 6.6 Langeberg municipality will be discussed: • Langeberg municipality performs a rudimentary, ad hoc structural fire fighting function but only has the capacity to mitigate small to medium- sized veld fires. Other fires may be mitigated by chance and if attended during the very early stages of their development. • Vehicles and equipment are basic and no formal training of staff is evident. • The maintenance profile of resources is low and there is no dedicated call-taking centre or fire administration. • The municipality has no trained leadership as in a Chief Fire Officer appointed in terms of the Fire Brigade Services Act, 1987. • The municipality has no training and little practical capacity for fire fighting other than for small to medium-ized veld fires. • It has no capacity to attend chemical fires or hazardous substance emergencies. • There is no fire safety (fire prevention) capacity. Planned scrutiny, fire inspections and enforcement occur via the building control department without fire service input or recommendations. • The municipality does not have the resources or training and does not perform rescues of any type.

89 TABLE 6.7 – MAIN FIRE FIGHTING RESOURCES IN THE EDM

EDM DMA Bitou George George Knysna Knysna (George) (George) Kannaland Kannaland Langeberg Mossel Bay Oudtshoorn Oudtshoorn

Major/Heavy Pumps (3850 ℓ/min) 1+ Medium Pumps (2250 ℓ/min) 2 1 1+ 2+ Light Pumps (<2250 ℓ/min) 1 2 1 1 1 2 x 4 Bush Fire Unit 2 1 4 4 x 4 Bush Fire Unit 1 2 1 3 3 10Ì Rescue Vehicle 1 1 HAZMAT Vehicle Water Tanker 2 1+ 1+ 2+ 2+ + + Aerial Appliance Control Vehicle 1 1 Trailer (specify) 3f 1c 1c 1c 3c B/A Compressor 1 1 1 1 Power Generator 2 4 1 2 2 2 Portable Pump 2 Floating Pump 2 2 1 2 2 Power Cutting Tools 1 1 5 Fire Hose 2 57 60 10 60 41 Branches 11 12 1 16 7 8 Ropes and Lines 4 1 1set  Ladders 2 4 3 1 6 2  Breathing Apparatus 2 10 12 6 10 21 12 Foam-Making Equipment 13 1 3 4 2 Power Rescue Tools 3 1 1 2 Pneumatic Rescue Equipment 3 2 3 First Aid/Life Support Equipment 1  Fire Station 2 1 1 1 4 1  Lecture Hall 1 1 1  Training Facilities Chief Fire Officer 1 1 1 Deputising Officer Fire Prevention Officer Training Officer Control Room Operator 1 4 1 4 3 5 Administration/Clerk 1 Operational Officer 3 2 2 4 Fire fighter 23 10 1 5 16 6 Reservist/Volunteer 9 11 10 15 28 12

90 Note : Legend + denotes combination pumper/tanker  denotes vehicles in George and EDM rural area f denotes fire trailers c denotes HAZMAT trailer

Source: ODS Consultants (2004:43).

The following are interesting facts from Table 6.7: • All the conventional pumpers in the district are older than 15 years with an average age of over 20 years. • The conventional pumpers are maintained at constant gross weight, that is fully laden with equipment, water and materials from the date of commission. • Pumpers are expected to perform at peak engine revolutions in all seasons and weather conditions without the benefit of “warming up”. • The chief fire officers and operational officers of the individual municipal fire services are presently performing fire prevention functions. With the increase of the area and complexity of all municipalities and the increase in the numbers of emergencies attended, fire prevention functions have generally been neglected. This function should have dedicated, specialist staff and resources and should perform the full range of fire prevention activities in terms of those described in SANS 10090:2003. • The fire services do not generally operate on independent and secure communications, but radio coverage is reasonably extensive except in mountainous areas. • Each Municipality has its own shift systems resulting in differing fire station configurations. • Accommodation for on-duty staff is provided in Mossel Bay, George, Knysna and Plettenberg Bay only. • Lecture facilities are located in most fire stations or alternative venues are readily available, however. • There are no municipal fire training facilities in the district. • Only three chief fire fighting staff in the EDM area. • Only two rescue vehicles operate in the area.

91 • The Oudtshoorn Municipality has a single medium-pumping capacity vehicle and the necessary equipment to attend low risk and limited moderate- and high-risk emergencies. • Veld fire fighting in the Oudtshoorn Municipal boundaries is very limited. • Mossel Bay Municipality has one medium fire appliance with two support vehicles that do not appear to be fully serviceable and are thus of questionable reliability. • The George Municipality has two medium pumpers supported by a water tanker/pumper which constitute the predominant of the fire fighting capacity at George. • The Bitou Municipality possesses a satisfactory array of vehicles for conducting veld fire operations; however, only a single light pumper is available for structural fire fighting. • The Langeberg Municipality has a light GMC pumper that is situated in Riversdal and is in reasonable condition; otherwise, the effectiveness and/or serviceability of most other fire fighting resources are viewed with considerable reserve. • The Knysna fire department has the capacity to confidently combat only low risk fires with a single light pumper and may manage small fires of moderate risks. • The EDM has limited rescue equipment and HAZMAT resources.

6.9 CONCLUSION This analysis should stimulate the exploration of rational alternatives and also enable a planned approach for the cost-effective extensions of functions and services in all areas. Risk profile illustrates that all local municipalities are extremely fragmented by both geography and distances between towns and settlements. The shortage in resources may result in reduced effectiveness in mitigating large low-risk fires, small moderate-risk fires and most high-risk fires.

Using the information of other fire fighting services and that of the EDM area, a suggested organisational structure is presented in chapter 7.This chapter will be looking at the implications of the supply-side and demand-side factors of

92 location. To be a competitive fire fighting service, the five performance objectives must be applied.

93 CHAPTER 7

SUMMARY AND CONCLUSION

7.1 INTRODUCTION Perhaps the greatest change evident in the way that public services will look from a perspective of twenty years hence is that there is likely to be a much more logical and end-user focused approach to the way in which organisations operate. The current model, which typically sees a split of provision and responsibility across national, regional and sometimes local boundaries, is going to be challenged, possibly to the point of extinction (Milner; 2000:177).

Eddie Obeng (1997:198) states that you can find new ways of delivering old needs: you already know who the customers are, where they are and what colour underpants they wear. It is all out there for the taking, but the real barrier is in your imagination. To be able to go virtual, you will need to redraw your mental maps. We need to build new mental maps. The opportunity is there but to convince people to redraw their mental maps will be a huge task.

In the language of the Chinese people there is a saying that goes like this: “May you live in interesting times.” According to their tradition this is considered to be a curse. Interesting times can be seen as a curse, because they often bring about change and chaos. They are times when old ways of doing things no longer apply and people need new approaches and perspectives (Melnyk & Denzler; 1996:16).

The implementation of a fire fighting service operational structure will be a new approach for fire fighting in the EDM area. This research did not include a study of the legal framework in which the fire fighting service must operate. The legal framework stipulates the following issues: ƒ Executive authority for fire fighting services as specified by the Constitution of the Republic of South Africa (Act 108 of 1996),

94 ƒ The prescribed requirements and processes for deciding on a mechanism for service delivery by the Municipal Systems Act (Act 32 of 2000), ƒ The division of functions and powers relating to fire fighting services between the district municipality and local municipalities by the Municipal Structures Act (Act 117 of 1998), ƒ The Fire Brigade Services Act (Act 99 of 1987) that defines the functions of a fire fighting service (ODS Consultants, 2004:9).

The above mentioned issues cannot be changed like an organisational structure, but to be objective in creating a new structure the above mentioned legal requirements have been taken into consideration. The division of powers between the Eden District Municipality and the other seven local municipalities is still a struggle for power and will not be solved in the near future. This struggle for power also impacts on the morale of the fire fighters because they feel that there is no actual direction due to a clumsy structure and an ineffective centralising or decentralising of decision making. Therefore it is important to create a new organisational structure that includes both district and local municipalities. There is no definite division of boundaries when it comes to a disaster in the rural areas.

7.2 ORGANISATIONAL STRUCTURE The movement towards tighter and leaner organisations has drawn attention to the importance of alternative forms of structure, and has placed increased emphasis on the demand for flexibility. Due to the revolutionary changes in organisations, the need is great for new and flexible structures. It is therefore very important to create a fire fighting management structure that will comprise all aspects of the EDM area, including the diversity of the environment.

The new structure should include some characteristics of the bureaucratic organisational structure, namely the flat organisation, virtual organisation, network organisation and the geographic structure.

Thomson and Strickland (1999:291) state that a geographic organisation, as a structure, suits firms pursuing different strategies in different geographic regions

95 well. Due to the geographic diversity, this structure is the one to use as it will promote improved performance. The primary advantage is to focus on customer needs and provide faster, better service. The duplication of parts of the organisation structure will be expensive, but the needs of a specific area will be attended to and will result in faster and better service.

The geographic structure will be the design for both the District Municipality and the other seven municipalities. The available manpower will be divided into geographical areas according to the risks in that specific area. Table 7.1 shows the available manpower and Table 7.2 the different areas:

TABLE 7.1 - TOTAL MANPOWER STATISTICS. Rank Total Chief Fire Officer 3 Deputising Officer 0 Fire Prevention Officer 0 Training Officer 0 Control Room Operator 18 Administration/Clerk 1 Operational Officer 11 Fire fighter 61 Reservist/Volunteer 85 Source: Otto (2004)

TABLE 7.2 - IDENTIFICATION OF THE THREE GEOGRAPHICAL AREAS Municipality Cities, Towns and Settlements

UPPER PLATEAUX Kannaland LADISMITH, CALITZDORP, DROËVLEI, VAN WYKSDORP, ZOAR Oudtshoorn De Rust/Blomnek, Dysseldorp, Oudtshoorn DMA Uniondale, Haarlem, Noll Coastal Platform A Langeberg Albertinia, Gouritzmond, Heidelberg, Riversdal, Slang River, Still Bay, Witsand/Fort Beaufort Mossel Bay Friemersheim, Herbertsdale, Great Brak River, Mossel Bay -

96 coastal resorts: Vlees Bay, Boggoms Bay, Dana Bay, Hartenbos, Little Brak River Coastal Platform B George George, Glentana, Herold's Bay, Victoria Bay, Herold, Wilderness

Knysna Knysna, Sedgefield – coastal resorts – Brenton-on-Sea, Brenton-on-Lake, Buffels Bay, Noetzie Bitou Keurboomstrand, Natures Valley, Plettenberg Bay

Source: ODS Consultant (2004:20).

TABLE 7.3 - DEMOGRAPHICS OF EDM DIVIDED INTO THE THREE AREAS Total Total Total Population Formal Informal Households Dwellings Dwellings Upper 123 246 27 713 25 869 1 844 Plateaux Coastal 115 604 32 569 29 095 3 469 Platform A Coastal 216 056 59 015 47 334 11 641 Platform B Source: (www.statssa.gov.za/census01 (2005).

As shown in the above tables the EDM area is divided into three parts by rivers and mountains. The areas are nearly the same size, with the same number of dwellings. The upper plateaux that are situated between the Outeniqua mountain and the Swartberg mountain are smaller than the other two, but the infrastructure is not so developed as on the other side of the mountain. Table 7.2 divides all the towns into three areas and Table 7.3 is the total population, households and dwellings per area. Figure 7.1 shows the possible organisation structure for the EDM fire fighting area:

97 FIGURE 7.1 - GEOGRAPHIC ORGANISATIONAL STRUCTURE OF EDM AREA

Regional Commander: Regional Regional Commander: Upper Fire Safet Plateaus

y Administrative and Coordinator support staff

Platform B Coastal Chief Fire Officer

Regional Commander: Coastal Platform A

Fire Stations Source: Adapted from http://www.courses.bus.msu/materials/1022/ch11a.ppt

The regional operations will be divided into Regional Commander Upper Plateaux, Regional Commander Coastal Plateaux A and Regional Commander Coastal Plateaux B.

FIGURE 7.2 – REGIONAL COMMANDER COASTAL PLATEAUX A

REGIONAL COMMANDER: COASTAL PLATEAUX A

UNIT SUPERVISOR Administrative support

SHIFT A SHIFT B SHIFT C

• Shift Leader • Shift Leader • Shift Leader • Fireman • Fireman • Fireman • Fireman • Fireman • Fireman

Source: Adapted from Figure 2.1

98 Each regional command structure will look like the above structure and should have characteristics of a bureaucratic organisational structure. This part of the structure performs a particular high specialisation of labour. Other characteristics are: centralised authority, top-down structure with definite boundaries between different jobs, sections (in other word units). There can be more than one unit supervisor with fire fighting teams, depending of the size of the regional office. The Coastal Plateau B will have more than one unit supervisor. George, Mossel Bay, Knysna, Bitou and Oudtshoorn, who each has a fire station in town, can still be used as sub-stations due to their urban fire fighting capacity and the realistic distances from them to the rural areas.

The Sacramento Metropolitan Fire District is also divided into districts and is much larger than our local fire fighting services. The success of having 38 fire stations, 673 paid personnel to cope with 56 700 call outs and the system of working in districts, shows that the geographical model can work.

The Metropolitan Police Department also converted to a geographical organisational structure. The new structure created a more streamlined organisation that promotes teamwork, communication and accountability. They could focus on what they really must do. If the fire fighting services in the EDM area transform to a new structure, they will also be able to perform all the functions according to the Fire Brigade Services Act (Act 99 of 1987). The fire services must include the total package of fire services policies, functions, sub- functions and related activities, which are: ¾ Fire prevention, ¾ Fire fighting, ¾ Rescue, ¾ Support and allied activities including, 9Risk profile of the area of jurisdiction (risk categories), 9Call receipt and processing requirements (including communications), 9Vehicle/equipment availability and maintenance, 9Incident management procedures, 9Pre-fire planning and risk visits, 9Training/personnel,

99 9Water supplies, 9Fire safety (fire prevention) functions and, 9Occupational health and safety.

The new EDM fire fighting service organisation structure will be a flatter structure than decentralised authority by creating the regional offices. The jobs will be more broadly defined, with greater overlap and flexible boundaries among the different regional offices.

The area from George to Knysna is predominantly covered with forestry and timber plantations. Plantations in the Outeniqua region cover about 80 000ha with substantial coverage occurring around Uniondale and in the foothills of the Langeberg Mountains. The weeding out of alien vegetation has resulted in the dense accumulation of dead combustible vegetation in many mountain catchment areas, adding to the localised intensity of many fires (ODS Consultants; 2004:18). Mountain fires are regular seasonal occurrences and due to their inaccessibility, height, steep slopes, ravines, gorges and isolated valleys, they pose serious safety risks to fire fighters and isolated communities alike. Mountain fires also destabilise rock faces and significantly contribute to rock falls and erosion. This is especially significant in mountain passes and in areas that are in close proximity to roads and human habitation. The lack of a roads network near the mountain areas make it very difficult to fight a fire when it is still small.

These fires create their own dynamics that include firestorms and rapid vertical propagation, generally termed “chimney effects”. These fires, their prevention and control require special management knowledge and skills coupled to intimate knowledge of the terrain and local agency structures and functioning. They most often require multi-agency attendance and due to the size of areas involved and their complexity, will most correctly be termed and dealt with as disaster situations. This would require high-level strategic co-ordination and complex tactical management preceded by detailed pre-incident planning and multilateral co-operation (agreements) (ODS Consultants; 2004:18).

100 The Zululand Fire Protection Services (ZFPS) is a private aerial fire fighting service that is contracted by the timber growers in Kwazulu-Natal. With sufficient bombers available, a load could be dropped on the fire every three minutes, which would be happening while the ground crew are still on their way. A network organisation can be created with an organisation like ZFPS. The ZFPS or similar organisation is highly specialised and also understands the strategic goals of the partnership.

The ZFPS is also using the Firehawk computerised fire detection system as described in chapter 3. The EDM fire fighting service can use such a system to increase efficiency effectively. Due to the regular seasonal mountain fire occurrences, these fires can be spotted by the Firehawk system when it is still very small. The Firehawk system can be installed on the various maintain tops and can overlook each plateau and send the images to the control room. The Firehawk will be identifying the exact spot where the fire is by using a geographical information system. The identification will reduce cost by searching for the fire and will decrease the time that it usually takes to arrive at a fire.

If all the fire fighters in the EDM area were privately employed and the communication networks were in place, a virtual organisation would be the organisational structure to implement. The only permanent employees would be those in the call centre. However, due to the current lack of computer skills of the fire fighting personnel, it would not be possible to create a virtual organisation. If the Firehawk system is a possibility, the control room personnel must be educated to use it successfully, due to fact that it is a computerised system.

7.3 THE LOCATION OF CAPACITY The definition of location of capacity, Slack et al. (2001:159), is that location is the geographical positioning of an operation relative to the input resources, other operations or customers with which it interacts. Sometimes operations cannot logically justify their location. Some are where they are for historical reasons. The decision not to move is made on an assumption that the cost and

101 disruption involved in changing location would outweigh any potential benefits of a new location.

The two fire fighting services in George are situated almost next to each other. Sometimes they are disputing who is going on a call out, and sometimes they both arrive at an emergency scene.

The identification of the supply-side and demand-side factors will simplify the decision of location. The supply-side factors as implemented in the EDM area are identified in Table 7.4.

TABLE 7.4 – SUPPLY-SIDE FACTORS AND THEIR IMPLICATIONS SUPPLY-SIDE IMPLICATIONS FACTORS Labour costs Cost of employing extra fire fighters, Cost off relocating existing fire fighters to areas needed. Land costs Cost of obtaining a fire station where no other exists. Cost of upgrading existing stations to required standards Energy costs The only important factor is the availability of water. Transportation costs Cost of delivering goods such as chemicals for submitting a fire. Travelling cost of fire fighters if necessary. Community factors Government financial assistance in creating a infrastructure for emergency services. Language will be that of the region.

The demand-side factors can influence service to/revenue from customers as the location varies. Table 7.5 identifies the demand-side factors that exert an influence on a location decision;

102 TABLE 7.5 – DEMAND-SIDE FACTORS AND THEIR IMPLICATIONS DEMAND-SIDE FACTORS IMPLICATIONS Labour skills Do the local people have the skills to be fire fighters? Cost of training. Suitability of site The fire station must be on such a site to be able to move quickly to a call out. Easy-to-reach main roads network. Image Must look like a professional fire fighting service to be proud of. Convenience for customers The same as suitable site. (speed and dependability). Resources must be in a dependable working condition.

The Metropolitan Police Department decided to restructure the entire department and relocate responsibilities to the districts for three reasons; • To place resources in the community, • Focus on resources on reducing crime and solving problems in the 83 areas (districts), • To hold managers at every level of the organisation accountable for the quality of policing service within their geographic commands (http://www.dcwatch.com/police/980909.htm; 2004).

By choosing the best location and the capacity to detect fires more rapidly and quickly, limited damage and cost will decrease with a subsequent advantage to the customer and community.

7.4 THE FIVE PERFORMANCE OBJECTIVES Today’s business world is swept, some would say convulsed, by epic change; whole industries dissolve and re-form before our very eyes, and technology defies the imagination almost weekly. In such times, the great strengths are not clairvoyance and omniscience – in short, supply is the requirement under the best of circumstances. Great strengths are flexibility, adaptability, a capacity for learning quickly. To be clear in business today, one does not need to be a prophet. But when great transformations are unfolding, one does need to grasp the opportunity first (PriceWaterhouseCoopers; 1999:2) 103

These five performance objectives can be applied to any type of operation and will help the fire fighting service to be more competitive within themselves and against other fire fighting services. The five objectives can be tested by asking the following five questions;

• Is the fire fighting service doing things right? • Is the fire fighting service first on a scene? • Is the fire fighting service doing things on time? • Is the fire fighting service making changes where necessary? • Is the fire fighting service doing there job cost-effectively?

7.4.1 Is the fire fighting service doing things right? This begs the question what the quality of the fire fighting service is. Are they following procedures when they are fighting a fire? What is the quality of their resources?

The vehicles and much equipment throughout the district fall into two categories; • Inappropriate vehicles and equipment for the intended/stated application, • Vehicles and equipment that are redundant or nearing redundancy.

104 TABLE 7.6 – MAIN FIRE FIGHTING RESOURCES IN THE EDM

DESCRIPTION Total

Major/Heavy Pumps (3850 ℓ/min) 3 Medium Pumps (2250 ℓ/min) 6 Light Pumps (<2250 ℓ/min) 6 2 x 4 Bush Fire Unit 7

4 x 4 Bush Fire Unit 17

Rescue Vehicle 2 HAZMAT Vehicle 0 Water Tanker 8 Aerial Appliance 0 Control Vehicle 2 Trailer (specify) 9

B/A Compressor 4

Power Generator 13 Portable Pump 2 Floating Pump 9 Power Cutting Tools 7 Fire Hose 230 Branches 55

Ropes and Lines 6

Ladders 18 Breathing Apparatus 73 Foam-Making Equipment 23 Power Rescue Tools 7 Pneumatic Rescue Equipment 8 First Aid/Life Support Equipment 1

Fire Station 10

Source:ODS Consultants (2004:43).

Table 7.6 lists only the most important resources available within the district which are shown as totals in Table 6.8 in chapter 6. The conventional pumpers in the district are older than 15 years with an average age of over 20 years. Maintenance is done on a continuous base. Funding will be needed to invest in new vehicles. Using the Firehawk will also improve the quality of the service.

105 With the exception of the vehicles, the other equipment is in a better condition and can safeguard an error-free service. The trained fire fighters know all the procedures and are leaders of a fire fighting team.

The resources of the Oudtshoorn Municipality will generally be inadequate to effectively manage any complex fire situation. Equipment may generally be classified as rudimentary and the fire service would be unable to deal with moderate flammable liquid fires. The Mossel Bay Municipality’s vehicles are generally well equipped. Taking the risk profile of the municipality into account, it is believed that the vehicle fleet and the distribution of resources are inadequate to provide equitable services to all communities or to manage complex or major fires with any confidence. The existing vehicles of the George Municipality, including the other equipment, will be successful in controlling most expected fires. Capacity, to deal with veld fires is limited but satisfactory for the main George urban area. The Bitou Municipal fire service has extremely limited capacity for managing fires other than medium-size low-risk and small moderate-risk fires. General fire fighting equipment, with the exception of structural fire rescue, is satisfactory. Knysna Municipality will be able to manage small to medium-size veld fires with some confidence.

The EDM maintains a main fire station in George with sub-stations in Uniondale (DMA) and Ladismith (Kannaland). There is a total of 17 LDV veld fire units in the district. The distribution of fire fighting resources is as follows: • De Vlugt (Bitou) – 500ℓ LDV veld fire unit, • Uniondale – 6000ℓ tanker fire engine and 500ℓ 4 x 4 LDV veld fire unit, • Haarlem – 500ℓ LDV veld fire unit, • Goedehoop – 500ℓ LDV veld fire unit, • Eensaamheid – 500ℓ LDV veld fire unit, • Ladismith – 6000ℓ tanker unit and 750ℓ 4 x 4 LDV veld fire unit, • Calitzdorp – 500ℓ veld fire trailer. (Otto,2004)

Water for fire fighting and the availability of fire hydrants, are important factors to make a localisation decision for fire fighting operations as well as for the replenishment of tanker vehicles that are virtually non-existent, except in the

106 larger towns. The general status of water supplies in many developing towns and in most rural and coastal settlements is tenuous.

The district generally has limited bulk water storage facilities; however, general proximity to the coast may provide a source of water for aerial fire fighting.

7.4.2 Is the fire fighting service first on a scene? Speed is the one objective that a fire fighting service is measure by. If the fire fighters arrive late at a fire and it destroys everything, who is to blame? Speed reduces risks. By using the Firehawk, the first response of Zululand Fire Protection Services is fast and reduces the risk that the fire may develop into a disaster. The fire is identified when it is just a smoke signal. In the EDM area the response time is not so fast due to the load of water the vehicle carries and the mountain passes. When a fire has been reported telephonically by a member of the public, the control room reports the fire to the nearest fire station. The quality of the resources plays a major role in the reaction time of the fire fighting service.

7.4.3 Is the fire fighting service doing things on time? If the local fire department is always late when it is called out to an emergency and there is another option, the customer will phone the private fire fighting service when needed. In terms of dependability of a fire fighting service, the quality of the resources plays a vital role. In the EDM area the different fire stations have an agreement that they will help if the specific station cannot help with an emergency.

7.4.4 Is the fire fighting service making changes where necessary? Flexibility is the ability to change far enough and fast enough to meet customer requirements. The fire fighting services is flexible in their operation when its members are able to change shifts quickly when they are busy fighting a fire. They have the flexibility to change over to different procedures and products during the process of fire fighting. The poor quality of resources can have a hampering effect on their flexibility.

107 7.4.5 Is the fire fighting service doing its job cost effectively? Cost is the major operation objective. The lower the cost, the higher the profit, and when it is a non-profit organisation is it good value and the cost is relative low. Cost can be categorised as fixed cost and variable cost. The costs are influenced by other performance objectives.

By using tax payers’ money to provide a service that is actually very expensive, the fire fighting service must be cost-effective. When an emergency occurs and the fire services cannot operate due to restricted resources because of a lack of funding, everybody asks questions. But when nothing happens and the fire service decides to buy a new fire engine, then no funding is available.

The creation, improvement and/or extension of any service as well as the allocation of financial resources to achieve this will require the revision of the Integrated Development Plan(s) and Council approval of anticipated changes. Plans should or could be revised to accommodate the necessary costs associated with the upgrading of the fire services.

Councils have therefore committed the greatest proportion of capital expenditure to the development and extension of the necessary infrastructure in terms of approved five-year developmental programmes. It has been noted that the limited capital expenditures for most fire services have been financed from revenue, a source that cannot realistically be viewed to be secure and sustainable, especially in terms of programmes for asset capitalisation or recapitalisation. This is also generally indicative of the quantum and terms of capital commitment by most municipalities. While the present situation may be understandable, it is believed that further delays may make future capitalisation and recapitalisation of the fire services unaffordable (ODS Consultants; 2004:53).

Due to the relatively small capital allocations for fire fighting services, expenditures have primarily entailed the purchase of minor equipment and the upgrading of existing infrastructure. Although some light veld fire vehicles have been procured, no provision has been made for several years towards the replacement and upgrading of obsolete fire fighting vehicles and major

108 equipment. At this juncture, resources are inadequate to provide for the necessary functions as described or to support the geographical or area-wide roll-out of services (ODS Consultants; 2004:53).

Problems in funding the fire fighting services are further compounded by various obligations imposed on both local and district municipalities in terms of the Local Government: Municipal Systems Act and Local Government: Municipal Structures Act. Alternative capital funding via grant(s) may also be sourced from the Department of Provincial and Local Government (DPLG) in terms of Municipal Infrastructure Grants (MIG) and such alternatives may be explored. A recent government initiative to recapitulated fire services which the Provincial Government is administering may also be investigated. Further options include the sourcing of local capital funding via grants from the National Lottery or via foreign donor developmental aid. This would be especially relevant to developing services in/for disadvantaged communities (ODS Consultants; 2004:53).

Should agreement on a centralised or co-operative service structure be reached, it would require agreement on equitable but proportional contributions by each participating municipality for such a service. Operating costs are generally funded via the rates accounts of local municipalities; however, it is believed that the option of an emergency services levy should be considered. This is believed to be the best option in that it would be based on property ownership and may be further aligned to the particular service delivery standards applicable to a particular area. Various abatements may also be considered for areas with designated services (FBSA) and in defined self-help municipal areas. As incentives for improving fire safety, further abatements may also be offered to industries that employ special fire safety measures (ODS Consultants; 2004:54).

The Rural/Metro Fire Department provides a high-quality, cost-effective fire service. Their revenue is not tax-based as the customer pays Rural/Metro an annual fee based on the total square footage of their home. Non-members are billed for service at the rate of $800 per hour, per apparatus, for all fire calls. Non-member fees for a typical house fire can cost as much as 10 years’ worth

109 of membership costs. Homeowners’ insurance usually pays only a fraction of the bill, leaving the property owner responsible for the difference. Thomas DiLorenzo (2003) writes the following: “The average cost to Rural/Metro customers is 25-50 percent lower than similar services provided by governments although very few, if any, government fire departments can match the quality of the Rural/Metro’s services.” (http://blog.lewrockwell.com/lewrw/archives/002233.html; 2004)

7.5 SUMMARY Finally, fires and natural disasters are often viewed to be Acts of God. This has the tendency of diminishing the importance and significance of organised prevention and mitigation measures such as public education and awareness of fire safety programmes and fire prevention activities. The impact of fire on natural vegetation or on the poorest of the poor, particularly the rural poor, cannot be overstated. It is those living at the margins, who are always the most vulnerable.

The need to establish an integrated plan for fire management is an important matter. Speedy response and adequate ground support are absolutely critical factors in fighting fires. The implementation of a new structure for the EDM area is not simple and it will not happen overnight. The new structure will not be effective immediately but rather be done in phases over a few months. Each phase must be planned and implemented carefully from logistics to policies, procedures, training and politics. The establishment of an organisational structure must follow the decision of location which will have a major impact on the EDM fire fighting service in the whole area.

Prior to any decisions relating to the fire fighting services, it is imperative that all functions are standardised and service standards determined. The following are suggestions that could be implemented: • Establish a single district disaster management/emergency service control centre and communications network, • An undivided fire fighting function whereby both the Municipalities and District Municipalities form part of the new fire fighting service, 110 • The immediate establishment of a co-ordinating structure for the purpose of jointly determining standards, service delivery models, regulatory mechanisms and operating guidelines for the fire services as a whole and, • Structures and mechanisms should be explored to streamline and improve service co-operation in the short term which can be prolonged to the future.

Once everything is in place, the new structure will bring the fire fighting service in line with the way fire services ideally operate. Their functions are: • Fire fighting ( fire suppression) function, • Rescue function, • Hazardous Substances Emergency (HAZMAT) function, • Fire Prevention function, • All derived or associated functions in connection with the above.

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ANNEXURE A - QUESTIONNAIRE

Date Authority Official

FIRES Number of Formal / informal dwellings / & veld fires Storage Industry Transport Other

RESCUE Transport accident Environmental (mountains) not sea rescues

HAZMAT(chemical fires or emergencies)

Number of How many fire Stations How many sub-stations How many satellite How many control centers Official

Amount

Municipal Total Operating Expenditure

2002/2003 Fire Fighting Operating Expenditure

117 2002/2003 Municipal Total Operating Expenditure

2003/2004 Fire Fighting Operating Expenditure

2003/2004

Official: Full time Staff Qualified/Trained leadership Unqualified and untrained leadership

Qualified/ trained fire-fighters

Unqualified/untrained fire-fighters

Part time Staff, Reservists and Volunteers Qualified/trained leadership Unqualified and untrained leadership Qualified/trained fire-fighters Unqualified/untrained fire-fighters

118