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HomeMy WebLinkAbout07/05/1995, 3B - FIRE MANAGEMENT STUDY city of San LUIS OBISpo MEETING DAT July 5, 1995 WMA COUNCIL AGENDA REPORT FROM: Bob Neumann, Fire Chief SUBJECT: Fire Management Study CAO RECOWAENDATION: By motion, receive and direct staff to pursue implementation of the Hunt Management Study as modified by the recommendations of staff. REPORT IN BRIEF The Hunt Management Study makes numerous recommendations which are supported with an implementation plan. These recommendations are clearly outlined in the study and include many operational and technical issues that have or will be implemented. In this report, staff will be focusing on the following major topics: 3-Person Engine Companies, Apprentice Program, Administrative Support, Technical Support, Hazardous Materials Program, Ambulance Contract, Team Building and Firefighter Positions. It should be noted that implementation of these changes will not impact the current budget. They will be offset by increased revenues or salary savings. DISCUSSION Background In 1994, as part of an ongoing City effort to conduct regular reviews of departments and programs to increase productivity and improve service delivery, the CAO commissioned the Hunt Research Corporation to conduct a Fire Department management study. At the same time, two other City- wide studies were being completed. A comprehensive review of the City's fee structure was conducted by David M. Griffith and Associates (DMG) and a review of the City's computer and radio systems was performed by E2"G Peat Marwick. These additional studies will have impacts on the Fire Department. For the purpose of this report, the primary emphasis will be the findings of the Hunt Management Study. Scone and Methodology The Hunt Research Corporation was engaged to review the Fire Department's management structure and other pertinent issues. The scope of this study included the following: review of management structure and how it affects daily operations, review of managerial effectiveness, review of budget and administrative practices, identify area warranting further study, and provide a specific action/implementation plan. The methodology for this study encompassed an employee questionnaire, comparative data analysis, observations, written materials, and several interviews with employees both within and outside the department. QgM arative Data Anal The Hunt study made a comparison of fire department organizations in the cities of Santa Cruz, Manhattan Beach, Lompoc, and Monterey. In addition, state and national data was compared. The following information about the City's overall fire and emergency medical operations was revealed: 1 ,01111QJ�AQIJJl city of San suis OBISpo COUNCIL AGENDA REPORT • Annual fine loss is 2.5 times higher than surveyed cities and 8% lower than national data. Per capita, fire loss is 2.4 times higher than surveyed cities and 6% lower than national data. This may be partially due to the method used to determine fire loss, and the high property values in the City. Fire loss is down slightly from last year, but higher than most previous years. • The percent of Emergency Medical System (EMS) calls compared to total calls is 64%, about average among surveyed cities. Number of total alarms is 20% lower than the other cities. • On-duty staffing per company is lower (2 versus 3). Per capita on-duty staffing in San Luis Obispo is .27 per 1,000 population compared to .225 per 1,000 from comparable cities. • Budget is somewhat higher than surveyed cities. This is partly due to the number of fire stations needed because of geography and the number of Fire Prevention Bureau personnel. Note: The Bureau currently runs the City's existing Hazardous Materials Program which explains the higher number of personnel. • Most cities have shift Battalion Chiefs and all other cities surveyed, except San Luis Obispo, have 3-person engine companies. General Fibd!= of the Hunt Management Studv Some 26 recommendations were presented in this study. These are clearly outlined in the document (pages 37-40). The following are the major topics of the study. For a variety of reasons which are explained below, some of the recommendations have been modified by staff. • 3-Person Engine Companies The consultant states that the department's current configuration of 2-person engine companies are inefficient and unsafe. He recommends that 3-person engine companies be implemented. Staffs Recommendation Staff concurs with this.recommendation. The department has historically staffed its outlying fire stations with 2-person engine companies. Until recently, the main headquarters station has operated with a 2-person engine company, a 1-person truck, and a 2-person Paramedic Squad. The recent purchase of a combination engine/ladder truck enables the department to staff the headquarters engine with 3 persons. Shifting the Squad personnel to the outlying fire stations would then cover over 75% of the City by a 3-person engine company. As discussed in greater detail below, the use of an apprentice program will allow the Department to provide 3-person engine companies 100% of the time. 2 city of san uais OBISPO COUNCIL AGENDA REPORT This change will significantly reduce the risk of traffic accidents, by sending fewer vehicles to emergency incidents, thereby reducing City liability exposure and improving the quality of life for citizens and tourists. Three-person engine companies are known to operate more efficiently, increase safety and are considered to be the minimum-staffing level in a modem fire department. They will vastly improve the department's operations at fires and other emergency incidents. The conversion to Paramedic engine companies will require minimal equipment. The limiting factor is the number of available personnel who are qualified at the Paramedic level. The department has traditionally staffed between 12 and 15 Paramedics. In order to operate most efficiently, the new program will require the Department to staff at a level of 15 Paramedics. The Department will, in the future, be able to meet its Paramedic needs through the hiring process. This is important as local training is no longer available. • Apprentice Program The consultant recommends that an apprentice Firefighter program be implemented. Staffs Recommendation Staff concurs. There are many successful apprentice Firefighter programs in operation throughout the State. Properly organized and managed, this program can provide necessary personnel during periods of peak commitment of Fire Department resources. This can be accomplished with significant savings over the cost of maintaining a permanent standby force of proper strength to control major fires, similar emergencies, and to assist the department in its daily operations. There are many other benefits to be derived from these programs in addition to the assistance provided in emergency situations: • Help reach affirmative action goals through community outreach recruitment. • Assure a supply of skilled Firefighters for future needs. • Recruit from the community. • Examine and evaluate potential regular employees for a longer period of time. Some of the benefits that participants can expect from a program include: • The opportunity to develop employability and job skills. • The probability of placing higher on an entry-level Firefighter examination for the City of San Luis Obispo due to their education and on-the-job training. 3 p�p1 city Of San WIS OBISPO COUNCIL AGENDA REPORT • The opportunity to evaluate the career of a Firefighter. • The ability to provide a valuable service to the community in which they reside. The program could be designed so that a variety of community members could lend support to the Fire Department at both the emergency and non-emergency levels. Staff will further develop the details of the proposed program and return to Council when new funding sources have been identified to support the program costs. • Administrative Support The consultant found the Fire Chief to be in need of additional administrative support; a situation long-recognized by the Fire Chief and CAO. He recommended reconfiguring the department's three clerical positions as a partial solution. In addition, he recommended hiring a 40-hour work week Operations Division Chief whose duties were also to include technical support. In order to assist in funding the new Division Chief, the consultant recommended reconfiguring the Department's Battalion Chief and main station Captains to one of Shift Commanders and Lieutenants. The consultant also discussed the possibility of converting the Fire Marshal's position from a sworn to a non-sworn position. Staffs Recommendation Based on the results of the Information Technology Master Plan recently prepared by Peat Marwick, (which were not available to the consultant), and for a variety of other reasons that are explained below, staff is modifying some of the consultant's administrative support recommendations as follows: • Staff concurs that the department's three clerical positions should be reconfigured to include an Administrative Assistant, Administrative Secretary and an Office Assistant. The downgrading of one of the existing Secretary II positions to an Office Assistant has already been accomplished as a position became vacant over the winter. With this recommendation, the remaining Secretary II position would be eliminated, with the incumbent filling the Administrative Secretary position; the present Administrative Secretary would be reclassified into the Administrative Assistant position. The net result of this reconfiguration will yield some 30 to 40% more administrative support to the Fire Chief. With the eventual completion of a phone voice mail system, it is believed that its percentage could increase. Staff believes that this, plus other changes described below, will meet the administrative support need. • Staff agrees the Fire Marshal's position should be re-classified to a non-sworn status. As current retirements at this staffing level are pending, this can be accomplished without negatively impacting existing staff. The savings generated by this will allow the funding of a new technical support position that will assume responsibility of the 4 �fj< City Of San Lacs OBI SPO COUNCIL AGENDA REPORT City's over-all radio systems and meet the department's need for technical support at the computer level. (Further discussion will follow.) Civilianizing the Fire Marshal position has other benefits. Historically, the department has notated this position among the existing Battalion Chiefs creating an inconsistent approach to managing the long-term workings of the department's Fire Prevention Bureau. The Bureau has strong ties to both.the Building Division and the development and construction communities. The complexities of the position require a considerable learning curve that has not been satisfied by the rotation of the position with existing personnel. Additionally, a non-sworn, division-head level position will bring another set of skills and perspectives to the fire service than traditionally associated with sworn fire professionals. This should improve the overall depth of technical, management and leadership resources in the department. A drawback of this action is that it removes a position from the experience range of existing Fire Department personnel and limits, to a degree, promotional opportunities within the organization. However, carrying out this function does not really require sworn staff, and can be carried out much less expensively on a civilianized basis. On balance, we believe that the benefits of moving to a non-sworn Fire Marshal outweigh the possible disadvantages. (This will require Meet and Confer with the affected labor unit.) In summary, staff has modified the administrative support recommendation. We do concur with civilianizing the Fire Marshal's position and reconfiguring the clerical staff. However, we do not support hiring the Operations Division Chief Supervisor (cost of approximately $89,000). The consultant had recommended reworking the Battalion Chiefs and main station Captains into Shift Commanders and Lieutenants. This was done primarily to partially fund the new Operations Division Chief position and would have had significant employeellabor unit impacts. Staff, in solving the need for technical support, which is described below, and through the reconfiguration of the administrative clerical assignments, was able to provide administrative support in a more cost-effective manner. Staff believes that the administrative and organizational needs as noted by the consultant will be served by this modification. We have shared our revised recommendation with the consultant, and he concurs. • Technical Services Support The consultant found that the Department was lacking in technical services support. This was having an impact in both the Fire Prevention Bureau and administration. The consultant recommended that his suggested 40-hour, work week Operations Division Supervisor assume these responsibilities. 5 385 city of San LUIS OBISpo Mij;% COUNCIL AGENDA REPORT staff ge=mendiition As noted earlier, the Fire Department consultant was unaware that a recommendation would be forthcoming for the City to establish one specific department to manage and coordinate the City-wide radio system. Currently, the City has assigned responsibility to each City department for the design, maintenance, and operation of its own radio system. Problems noted included: lack of adequate maintenance, duplication of maintenance contract services, significant dead spots and design flaws, and a general lack of policy regarding the purchase and design of the overall system. The Highway 41 Fire magnified these problems as the City lost its radio site on Tassajara Peak when it burned to the ground. Staff is recommending that, by utilizing both the savings generated from civilianizing the Fire Marshal position and re-working the City's existing radio service contracts, a new technical support position be assigned to the Fire Department. The department would then assume City-wide responsibility for managing radio communications. While each department's needs are somewhat different, the involved department heads concur that with appropriate input they would be.comfortable in allowing this person to be the main contact point and coordinator for the City's radio system. An associated benefit of this new position will be technical support to the Fire Chief and his administrative staff. Computers and radios, while not identical, have many similarities. The Department is currently not adequately addressing its technical needs. The new position will free up staff time from the Fire Prevention Bureau and from one of the Battalion Chief's assignments. A more detailed analysis of the finances will be found in the fiscal impact section. • Hazardous Materials Program The consultant recommends actively participating in the implementation of the Senate Bill 1082 program (SB 1082) which streamlines hazardous materials permitting, inspecting, and fee structures. .Staff Recommendation Staff concurs. The legislation (SB 1082) is forcing cities and counties to re-examine and eventually streamline the whole area of hazardous materials and the associated permit and inspection process. This legislation has been supported by cities in general, and.the California Fire Chiefs Association. Since the late 1980's this particular area has become extremely problematic for both the general public and business community and the agencies who are required to regulate these materials. The City of San Luis Obispo Fire Department is recognized by the State as an administrating agency charged with certain inspection responsibilities. The City's Utilities Department also 6 �i►I II����� II� CTLy of San LdI S OBI SPO - i COUNCIL AGENDA REPORT inspects certain occupancies that use and/or store hazardous materials. Their concern centers around those substances finding their way into the City's sewer system and eventually, the treatment facility where their presmce can have significant impacts on the system and the environment. The County is charged with supervising the same occupancies in order to insure that hazardous materials' wastes do not find their way into the land-fills and are disposed of properly. Each agency carries a variety of enforcement codes and regulations and assesses fees for the inspection and the permit. The result has become.a very difficult and inefficient process that over-inspects, over-charges and over-regulates the property or business owners. The legislation is designed to simplify the entire process with a goal of one inspection and one fee. Staff is recommending that a new program be developed that meets the goals of one inspection and one fee. Staff will return later in the year with a specific recommendation for establishing a streamlined uniform program. In addition the entire fee structure has been gated for Council review at that time. • Ambulance Contract The consultant advises the pursuit of private ambulance company reimbursement of Fire Department for Advanced Life Support (ALS) activities, or investigate implementing Fire Department transport service. Staffs Recommendation Staff is currently well-involved in developing a new agreement with the County and the various private providers. It is clearly understood that adequate reimbursement for the City's involvement in the emergency medical service must be fairly reimbursed. Should these negotiations fail, staff recommends that the City explore developing a Fire Department-based transport system. • Team Building The consultant recommends initiating a team building process that would improve long- standing issues related to morale and revise the Department's Mission Statement to reflect the vision and values of the Department. Staff Recommendation Staff concurs and this activity has been approved in the 1995-97 Financial Plan. • Firefighter Positions The consultant recommends the three'Firefighter positions lost in the 1992 budget reductions be reinstated. 7 j���l MY Of San MIS OBISPO COUNCIL AGENDA REPORT Staff Recommendation Staff concurs and Council has already approved this change in the 1995-97 Financial Plan. Finding of these positions will be provided from the existing overtime account. FISCAL D"ACTS The above-noted items represent the primary recommendations from this study. The remaining issues are technical or operational in nature and are within the scope of the Department's fiscal and operating capacities and do not bear Council review. From the onset, the staff was well aware that perceived and real needs were going to need a strong balance of economic reality in making the changes. Fiscal impacts were the primary considerations and are described as follows: 3-person Paramedic Engine Companies: There are no significant impacts associated with this change. A modest cost savings generated by fewer pieces of equipment responding to calls will be realized. The department will hire enough medics to meet the need, and operating expenses can be accommodated within existing resources. Administrative Support: The clerical restructuring will cost approximately $1,200 per year. The more expensive Administrative Assistant position is offset by the Secretary H position being downgraded to a lower classification. Conversion of the Fire Marshal positions to civilian status has a savings of$23,000 per year. Technical SpSport/Comaunications Position: This position will cost $50,800 annually. Currently, some $60,000 is being spent annually on radio service. Preliminary review found that many portions of the systems were doubly-covered. This was immediately corrected. The new position will allow us to rewrite existing radio-service contracts to the absolute minimum. These savings will help in off-setting the cost of this position. Most important, however, is that we will now be able to address long-standing, public-safety radio needs in our Police, Fire, and weak Public Works radio systems. It should also be noted that this position was one of the top priority recommendations from the City's recently completed Information Technology Master Plan. Hazardous Materials Prom-am: The eventual revision of this program will place an emphasis on consolidating existing resources, and the current associated fees. Staff will return later in the year to Council with a specific recommendation for establishing a streamlined uniform program with an associated fee-structure. Ag2mal ce Program: Hunt's initial cost study indicated that a one-time equipment cost of$19,000 with ongoing salary requirements of$87,000 per year could be expected. Staff, however, believes . that we could design a suitable program for approximately $11,000 initial start-up and salary requirements of$52,000 per year. Staff will further develop the details for a proposed program and return to Council when new funding sources have been identified in the hopes of supporting the program costs. Our primary focus will center around the Department entering into the California Firefighter Joint Apprenticeship Committee (JAC). This State-wide program is sponsored by the 8 p �O � p city of san Lars OBISPO COUNCIL AGENDA REPORT State Fire Marshal's Office and the California Firefighters labor association. This program has proved to be a very effective funding source for many fire departments. In summary, the following sections are recommended at this time'with the following fiscal impacts: RecommendaSion Net Fiscal Imps 3-Person Engine Companies 0 Administrative Support 1,200 Civilian Fire Marshal (239000) Technical Support Position 509800 Communications Contract Savings (29,000) TOTAL 0 Employee Participation The consultant interviewed many employees, both within the department and without, in order to gain a good perspective of the organization. Meetings were held with company officers, support staff, and the department's Battalion Chiefs. An anonymous survey was distributed to all employees. The consultant's first draft was distributed last spring, and a department-wide meeting was held shortly thereafter. Employees were encouraged to speak directly with the consultant regarding their concerns. This led to certain modifications as the consultant felt appropriate, as well as providing support for many of the recommendations. It should be noted that certain issues have labor unit impacts; therefore, Council would only be giving conceptual approval as staff would need to Meet and Confer with the bargaining units before implementing certain changes. CONCLUSION In general, while a number of recommendations were presented, the study found the Fire Department to be operating efficiently with a.dedicated group of employees who were highly motivated and productive. The consultant was "impressed by the cooperation, knowledge, professionalism, honesty and good attitudes expressed by all City employees with whom he interfaced during the study." The Hunt Study concludes that the most effective "improvement of service to the community, and to Firefighter safety, would be realized by implementation of the 3-person Paramedic engine companies.' The Department has been operating in this capacity on.a trial basis since June 1st. To date, no significant operational issues have been noted. All studies completed in 1994 identified that the department is currently operating with a minimum staff. Staff clearly understands that with the fiscal constraints facing local governments it will be our responsibility to seek out more effective ways to serve our community without increasing costs. We believe that this responsibility has been met by the development of our modifications to the Hunt Study recommendations. It is especially satisfying to know that one our recommendations (technical 9 ������I►�IIIII� �U City Of San LUIS OBISPO 8j;% COUNCIL AGENDA REPORT support) will benefit not only the Fire Department but resolve a critical City-wide need as identified in the Information Technology Master Plan. In summary, this study allowed an outside observer to review and critique our operations. It was refreshing to confirm our long-held belief that this is a solid and efficient organization. We are optimistic and look forward to the challenges that we face in the years ahead. ATTACEMENTS San Luis Obispo City Fire Department Management Study Executive Summary Note: The complete Bunt Research Corporation Study has been provided to the Council previously, and is available for review in the City Clerk's Office. 10 San Luis Obispo City Fire Department Management Study San Luis Obispo City. Fire Department Management Study L. Executive Summary: Hunt Research Corporation (HRC) has completed it's Management Study of the San-Luis Obispo Fire Department. Evaluating the management and operation of a Fire Department is a unique endeavor. A Fire Department in its most basic and traditional form, exists as a "circuit breaker" for a community, in the event something goes wrong which may impact it's citizens,visitors,property tax base, or economic well being. No matter how you dress it up, the Fire Department is a labor intensive, 24 hour agency. Thus,it is a uniquely configured combat-type organization, unlike most governmental agencies. It is a necessary service for any community and should remain However, there are, always ways to improve the management and operation, and many ideas and recommendations are set forth in this study. The consultant is extremely impressed by the cooperation, knowledge, professionalism, honesty and good attitudes expressed by all City employees with whom the consultant interfaced, during the study. A significant benefit has already been realized as a result of the process of conducting the workshops,interviews,and surveys as a part of this study. It has caused people to take an objective look at the way things are done, and consider doing them more efficiently and effectively. This study has already served as a "catalyst for change". All employees contacted were found: to be highly motivated and productive. They like their jobs and do. not. intend to leave. However, they identified numerous needs for improvement in:the organization The management related issues, and needs for improvement,.are listed in this summary and presented in the categories which were set forth in the RFP. RR 580 Page I San Luis Obispo City Fire Department Management Study A. Review of the Management Structure of the Fire Department 6 How It Effects Daily Operations. • The Fire Chief is in need of administrative support in the form of a Operations Division Supervisor (sworn position) at a management level. Both division supervisors would be sworn (safety) positions. In the event the Fire Marshal position is vacated,the position could be civilianized. At this point, the organization is not managed in a proactive manner because of the lack of such support, and the lack of planning which takes a time commitment; not currently available. This deficiency is contributing to current organizational problems. Suggested.examples of duties for this position are provided in the main body of.this report. This person can also be available, .by pager, for response to major emergencies. This increases the number of Chief officers on 40 hour week schedule, who are also available for major emergencies,by 50%. • In conjunction with the appointment of the Operations Division Supervisor, and upon forthcoming retirements, Battalion Chief positions should be re-designated as Shift Operations Commanders with no other significant tasks. They would have a pay differential above Captain This would obviously require a meet and confer and negotiations process with bargaining units, to gain consensus. This should be done in a positive manner involving all departmental personnel. The purpose of this change is to provide funding for the Operations Division Supervisor, and 3 person medic engine companies while maintaining the Shift Commander function (refer to implementation plan on Page 35). An interim organizational configuration is also presented. It is estimated that the goal can be implemented at a cost of . approximately $8,815.00 per month. This represents an approximate 3% increase in the budget. The goal may take some time to implement-due to current budget limitations. The recommended interim organization is depicted in Table 19 of the Appendix. This organization should be implemented and tried as HR 580 Page 2 San Luis Obispo City Fire Department Management Study soon as possible. However, it is the opinion of the Fire Chief and the City that the organizational shown in Table 20 is the appropriate organization to move towards,as a goal. • The Special Assignment Engineer (SAE) position serves primarily as a bridge between suppression forces and fire prevention. The position is not as effective as having a full time fire inspector. The position is justified as helping to maintain on duty staffing levels. All SAE's should be.assigned to manage the public education and disaster preparedness programs and be assigned to Station 4 (one on each shift). Such reassignment willresult in Station 4 having 3 persons on duty, and will allow the Department to implement community based disaster preparedness and public education programs. • To increase safety, operational efficiency, and to properly address the main emergency response activity of the Department (which is EMS), the on duty engine company staffing should be increased to 3 persons, and engines should provide Paramedic level service. This will significantly improve the level of service as provided by the initial responder, and will also reduce the number of units responding to EMS emergencies. This will reduce the risk of traffic accidents, thereby reducing City liability exposure, and improving the quality of life for citizens and tourists. It will also vastly improve operational capabilities at fires and disasters. Ihij recommendation is strongly supported by all sworn Department personnel and is a major reason for the proposed re-organization. The interim organization depicted in Table 19 includes 3 person medic engines. It should be implemented as.soon as possible. • The "fire protection specialist"in Fire Prevention bureau should be re-invented. He is not serving as a mid manager, in the chain of command. This position should be redesigned to better concentrate on hazardous materials programs,at same pay level. A reserve firefighter program should be implemented by the Fire Department. This program .would be an "apprentice" type HR 580 Page 3 San Lois Obispo City Fire Department Management Study program which would .utilize..seniors, recreation department programs, and other commurtity,members, as well as fire academy graduates. The program.would augment emergency and non emergency programs in the spirit of volunteerism. It would also serve as the prerequisite to become a San Luis Obispo firefighter. Examples of duties would include fire prevention, residential fire safety programs, public education, hydrant maintenance, plan review, basic fire inspections, administrative support, weed abatement, emergency response (Fire academy graduates only), and disaster assistance. More information is provided in the main body of this report. B. Review of Managerial Effectiveness of Department. • A team building.program .should be instituted immediately to begin to pursue healing of some hurts, morale problems, and feelings of distrust, etc.,, within,the.organization. There is some airing of problems_and: some healing of. the "Fire Department family" which needs to,occur before any significant:organizational changes are made. • The mission statement needs revision(example provided in Appendix). • Realistic and achievable organizational goals and objectives need to be adopted and internalized by all. • A 2 to 6 year "work plan" is needed. "The Department currently tracks a number of projects that are currently underway. However, there is no plan available to define. the Department's future direction A five year,plan_was developed in 1992 by the Fire Chief, but has not received approval and does not reflect the City's current financial status." • According to. interviews and surveys, Battalion Chiefs are not proactively interfacing,with their subordinate officers and crews, in person, on a dailybasis'.:and.are not directly participating as a member of the operational team (partially due to burdens of other assignments). Battalion Chiefs need to serve as mentors and coaches for their Captains. RR sso / Page 4 4 San Luis Obispo City Fire Department Management Study • Fire Chief needs to proactively supervise and manage the Battalion Chiefs and their activities on an ongoing basis. He must strive to assure he is providing leadership and communicating his vision for the organization to the organization. He must be sure he is continually auditing the system, and following up to ascertain how the organization and it's.programs is functioning and what the problems,if any,are. • As a general suggestion Fire Chief needs to assure that all Battalion Chiefs are providing leadership and are effectively managing their personnel in a fair and equitable manner utilizing positive, team oriented, modern management techniques. Consideration should be given to rotating. B.C.'s to different shifts. The Fire Chief, accompanied by the.Battalion Chief,should visit station crews on a regular basis, for purposes of auditing the system and soliciting input from the workers. • Communications needs improvement from the top down on a regular basis, so that every member of the.Department is in the know as to where the organization is going and what the current issues are. • The Fire Marshal must set goals and objectives based upon a 2 and 6 year workplan, and prioritize :the workload for the Fire Prevention bureau. The workloads and current areas of emphasis in the fire prevention bureau needto be closely analyzed and managed by the Fire.Marshal. Work should be re-allocated, to provide a more even distribution among the existing staff. Certain work should be contracted out,.or shifted to the suppression forces. The Fire Marshal should be sure that any services provided to other jurisdictions are on an equitable and reciprocal basis, with San Luis Obispo receiving an equal return from other agencies. No additional inspectors are needed at this time. In fact, a survey of comparable cities showed that the average number of inspectors is approximately 1.5. San Luis Obispo has .three Fire Inspectors. However, the Prevention.Bureau does provide a high level of thoroughcustomer service. . In addition, they carry out various special assignments. The'bureau is also the administering agency for Hazmat business plans and underground storage tanks. 8-46 RR 580 Page 5 San Luis Obispo City Fire Department Management Study • Emergency incident data needs to be analyzed. Fire prevention programs need to then-be prioritized.and adjusted commensurate with the data, and time available. For example: Re prioritize fire prevention program to increase the focus-on residences (where most fires occur), and evaluate whether participation in the City's parking control appeals board should cease. • The engine company inspection program must be audited for quality by the B.C.'s and Fire Marshal;on an ongoing basis. • Attention.should continue.to be given.to assuring that the current promotional and .disciplinary guidelines, and procedures are consistent,fair,objective and unbiased. • Specialized training.should be brought to the Fire Department rather than sending individuals (other than officers) to Asilomar. This will result in a cost savings, and allow better utilization of training funds. C. Review of Budget&Administrative Practices. • Consideration should be given to closing Station 3 and relocating the engine and it's personnel.to Station 1, if the Bishop overpass is constructed. This would result.in a significant savings, as one less station would be. maintained.. This would also allow the current Quint to operate as a staffed truck company thereby improving the community fire.protection (Station 1 would.have a 3 person truck company and•a 3 person engine company). • The maintenance and repair of the computer system needs to be done by the proposed Administrative Chief, contracted out to another City Department or to private sector, handled by a new, full-time City position, or by a shared position with Police Department, in order to allow the plans checker to.spend 20 to 30% more time on plan reviews.. • Equitable reimbursement :is needed to the City from private ambulance company.for Fire:Department ALS activities, or the Fire Department should: consider entering the transport business, including interfacility.transport. HR 580 Page 6 San Luis Obispo City Fire Department Management Study • The three secretaries are necessary positions. All three are highly motivated, hard workers. However, improvements in their workload allocation and training can be made. Reclassification studies should be conducted regarding two secretarial positions. It appears that two of the secretaries may be working out of class. The temporary secretary position should be converted to a permanent office assistant position. • Secretarial staff needs more recognition for the job they are doing. They tend to be the "unsung heroes"in some cases. • Fire stations need fax machines as well as comprehensive use of E- mail, and voice mail,to improve communications. • Implement a phone tree system for incoming routine calls in order to free up secretary time. Phone calls interrupt them frequently. • Fire Department should pursue becoming directly involved in the SB 1082 "Unified Hazardous Waste.Program", as long as total reimbursement is provided. The current hazardous materials program is splintered between the.. County and other City departments and is inefficient at best. This program should come under one agency and that the Fire Department should be that agency. The Fire Department is an enforcing agency and has the experience and the resources. It will have staffing implications for the Fire Department. However, by combining resources, perhaps no new positions will need to be added. • Overtime usage is excessive due to July 1993 reduction in post positions from 14 to 13. An additional on duty post position should be added to reduce.overtime. • In general,no abuses are evident in usage of sick leave or overtime. Some employees tend to use more leave than others. • The number of workers comp claims are the same for Police and Fire Departments. However, the cost for Fire Department claims is 1/3 of Police Department. Also, the types of injuries are less serious than for the Police Department. Through the meet and confer process, the physical fitness program should. be made mandatory to further improve the statistics. • Recruitment and testing practices should be reviewed to assure ongoing compliance with affirmative action goals. ZIR 580 Page 7 Saye Luis Obispo City Fire Department Management Study D. List of Areas Warranting Further Study, & Recommendations for Improvement Based Upon the Analysis Performed: • Implement a facilitated "team building" program as soon as possible. • Develop a Fire Department 2 and 6 year work plan. • Analyze the incident and fire loss data on an ongoing basis and adjust the fire prevention, public education and operational programs accordingly. • Analyze the generally increasing fire loss, in the community to identify the reason for the increase. • Fire station locations need to be re-evaluated,after Bishop overpass is built and Station 1 is relocated. A potential significant cost savings could occur if Station 3 can be closed, and personnel reallocated. • Be proactive in implementation of SB 1082 "Unified Hazardous Waste Program • Need to improve processing of incoming routine calls(phone tree). • Need more user-friendly management information programs for the computer system. Employees may need more training in the use of this sophisticated system. • Implement a reserve (apprentice) firefighter program, in 1996-1997 budget year. . Recruit 5 reserves (apprentices). Investigate a consolidated program with CDF (see discussion Page 30). • Consider use of retirees, future reserves, and community volunteers in Fire :Prevention, public education, and disaster assistance. • Consider developing a program to train the public in self-help emergency medical techniques (first aid), and disaster self-help using reserves,SAE's,and engine companies. • Strongly consider contracting out all routine fire protection system and hazardous materials plan reviews. • Strongly consider contracting out of computer services and repair, or study the provision of a new position within the City, or a half- 3B-/8 HR 580 Page 8 San Luis Obispo City Fire Department Management Study time position, shared by Fire and Police Department, to handle service and repair of computers and radios. • Investigate potential opportunities for "regional and functional consolidation" of certain programs with CDF, Morro Bay, etc. For example: Code enforcement, purchasing, ambulance service, reserve firefighters, joint apparatus testing, repair and servicing, joint fire station,etc • Conduct a classification study of the two permanent secretary positions. • Expand the automatic aid boundary drop program. • Need to restore microwave and radio system destroyed by Highway 41 fire,as soon as possible. • Continue the self-help inspection program for low risk occupancies. • At some.point in the future, consider the feasibility of vehicle locator devices and system status management for allocation of resources based upon vehicle location and incident history. These are the issues which will be discussed in more depth in the body of the report. Various supportive charts, graphs, data and other information are included in the Appendix. In conclusion, the San Luis Obispo Fire Department is a good department, which has performed reasonably well considering the minimal staffing. The Fire Chief is a modern, people-oriented manager who will continue. to improve his skills. Obviously,many needs for improvement have been identified. Most of the items are "no cost" management related issues. The greatest improvement in Fire Department management would be accomplished by implementation of the Operations Division Supervisor position, assuming it is filled with a highly qualified person. The greatest improvement in service to the community. and to firefighter safety. would be realized by implementation of the 3 person paramedic engine companies. However, with current budgetary limitations expressed by the City, it would be extremely difficult, or impossible, to implement the optimum system, which would implement the needed improvements by adding positions to the current organization without re- inventing existing positions. BE 580 Page 9 San Iasis Obispo City Fire Department Management Study It is commendable that the City and Fire Departmentstaffs are truly interested in improving service to the community and while improving employee well being. All comments and recommendations in this report are based solely on the observations, interviews, surveys, research, analysis, interpretations, opinions and experience of the consultant. All cost figures, financial data, and incident statistics were provided by the Fire Department,and assumed to be correct. It is the recommendation of the consultant that all employees should be consulted and should be involved in the consideration and implementation of any changes recommended in this report(in the spirit of good management and team work). Any organizational changes should be done thoughtfully and . slowly, a step at a time. . Each new step or modification should be thoroughly evaluated to determine if the desired,results are obtained. If they are, no additional changes may be needed. They should be tested,while leaving a path of retreat open if the concepts and recommendations in this study prove unworkable or infeasible,or unable to be implemented properly. . It is hoped that all comments and recommendations are therefore accepted in a positive manner with the sole objective of improving the organization and it's service to the community. of -04o HR 580 Page 10 ME"' SVG AGENDA ®o I DAI L - ITEM # San Luis Obispo Firefighter's Assor13MGM` h ❑ CDD DIR 748 Pismo St., San Luis Obispo, Ca. 93401 O FIRE CHIEF 5, 1995 RNEY ❑ PW DIR YQORIG ❑ POLICE CHF Bob Wilkinson, President, Firefighters Association TEAM ❑ REC DIR AD FILE ❑ UTIL DIR Subject: Fire Management Study J' g' ❑ PERS DIR Mr. Mayor and Ciy Council Members: The Firefighters Association Board of Directors has reviewed staff s report on the Fire Management Study. We also met with Chief Neumann last Friday to have questions answered and to gain more of an understanding to staff's report. I submit the following and ask that it be used as part of your analysis as you read the Council Agenda Report for Fire Management Study 3-Person Medic Engine Companies Association Position SLOFFA strongly agrees with the recommendation to convert to 3-person paramedic engine companies. As stated by consultant Jim Hunt, a three person paramedic engine company configuration will enhance safety and operational efficiency and will beneficially affect the department's primary emergency service, Emergency Medical Service (EMS). This Association believes that the EMS needs of the City and the emergency operational requirements should be provided for, 100% of the time. Concerns The Association wants to stress the need for a commitment on the part of the City to the staffing requirements needed to provide 3 person paramedic engine companies 100% of the time. Without this commitment, the recognized safety concerns inherent in.2-person engine companies are allowed to continue as a liability to the City. The increase&level of service provided by 3-person medic engines falls in line with the recognized standard in providing a highly effective paramedic program and emergency response teams. Association Recommendation Association concurs with Staff on the implementation of 3-person paramedic engine companies 100% of the time. We depart from Staff's recommendation to utilize an apprentice program to staff 3-person medic engines. Apprentice Program Association Position SLOFFA agrees with the concept of an apprentice program, though we have serious concerns regarding its implementation. JUL 5 1"S CITY CLERK SAN LUIS OB1500 r^ Concerns While SLOFFA agrees with the concept of an apprentice program, apprentice (reserve) firefighters should not be included in planning for the staffing needs of the department. The program name (apprentice) clearly points out that the programs main intention is the development of personnel. Other cities dealing with this type of program do not use an apprentice type firefighter in meeting the staffing needs of a 3-person engine. The utilization of an apprentice to meet the staffing requirement on an engine will provide a decreased level of service to the citizens as compared to a properly staffed engine. Cities with a history in this type of program recognize the safety issues and the lack of experience and maturity associated with the personnel attracted to an apprentice program. Aside from organizational development, there are meet and confer issues that must first be addressed. Additionally, recruitment, training and equipping these people present significant fiscal challenges and obviously, a substantial amount of time. Because of the poor experiences in other cities dealing with this type of program, the Association holds a view of apprehension over the organizational placement, and intended duties of these people. In a Department whose manpower has actually decreased since 1980, one major concern is where the time will come from to implement and manage this program, and which programs will have to be neglected in order to accomplish the task. Association Recommendation We ask that you direct staff to allow the Fire Chief work with the association and his department in a non-pressured approach to the development and implementation of this program. Administrative Support Association Position The association agrees with the consultant that the Fire Chief is in need of,additional administrative support. We concur with staffs recommendation regarding reclassification of the three clerical positions. We also concur with the implementation of a voice mail system. We disagree that the Fire Marshal's position should be reclassified to a non-sworn (Civilian) status. In reviewing the Management study, we find it recommends "civilianizing" the Fire Marshal's position, based on the addition of a sworn Operations Division Chief. We agree with Staff that the current rotation of the position among existing Battalion Chiefs creates an inconsistent approach to managing the Fire Prevention Bureau. The benefits of a sworn Fire Marshal play an important role in the safety of operations during many types of incidents. The consultant states, "As the City is isolated from neighboring cities having adequately staffed fire departments, it is imperative to have a better staffed cadre of responders in the event of a major fire or disaster, such as a flood, earthquake, or civil disorder." Any decline in the current number of our available safety personnel is a liability and has a negative effect on safe and efficient operations during an emergency. Association Recommendation Direct staff to work with the employee/labor unit to investigate ways to lower the cast of the position. Ways to improve consistency in managing the Prevention Bureau could be worked out and at the same time retain the value of this position. Technical Services Support Association Position We favor the position being proposed, particularly if it can be funded by ending overlapping contracts as stated. Hazardous Material Program Association Position SLOFFA recommends that since the Fire Department is currently assigned as the primary emergency responder to all hazardous materials incidents, the obligation of hazardous material permitting, inspecting, and fee assessment as designated by SB-1082 should fall under the responsibility of the Fire Chief. The safety benefit to the Fire Department emergency responders comes with the knowledge of hazardous materials' location and quantities being stored and quicker mitigation to an emergency problem in the City. The knowledge base and fire prevention program already existing within the Fire Department provides a cost-effective method of complying with SB-1082. Association Recommendation We recommend that Council give direction that the SB-1082 program be staffed and managed under direction of the Fire Chief. Ambulance Contract Association Position The Association agrees with Staff that the Fire Department should be fairly reimbursed for their EMS role. It is the position of the Association that contract negotiations have already stalled. The Fire Department, under the contract currently being negotiated, would need to have transport capability. Association Recommendation We ask Council to direct staff to initiate the purchase of an ambulance for Fire Department use per plans proposed in the County ambulance contract documents and explore a Fire Department based transport system. We also believe that there are many staffing options that have not been considered that would allow the City to own and operate an ambulance that we could support. Team Building Association Position We agree that a team building process needs to start ASAP. We know that the program will have positive results to improving long-standing issues related to morale. Association Recommendation Thanks for approving this activity in the 1995-97 Financial Plan. Fred&& Positions Association Position These positions.are very important for the over all_operational efficiency and safety of the members of Fire Department Association Recommendation Thanks for approving the positions in the 1995-97 Financial:Plan.