QUALITY IMPROVEMENT AUDIT OF THE CITY OF CLEARWATER FIRE AND RESCUE DEPARTMENT - FINAL REPORT
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A Quality Improvement Audit
of the City of Clearwater
Fire and Rescue Department
Final Report
Submitted to:
City of Clearwater
Submitted by:
MGT
of ~rica -
2123 Centre Pointe Boulevard
Tallahassee, Florida 32308
March 10, 2004
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TABLE OF CONTENTS
PAGE
EXECUTIVE SUMMARy...... ..... ............ ......... ....... ....... ............. ..... ... ...................... ..... .... i
1.0 INTRODUCTION AND SCOPE OF WORK.......................................................1-1
2.0 METHODOLOGy.................. .......................... ................. ......... ................. ......2-1
2.1 Overview of Methodology..................................................................... ..2-1
2.2 Major Study Elements........................................................................... ..2-2
2.3 Work Plan............................................................................................... 2-3
3.0 CU RRENT S ITUA TION .................................................................................... 3-1
3.1 Overview of Current Services .................................................................3-1
3.2 Comparison Data.................................................................................... 3-6
4.0 FINDINGS AND RECOMMENDATIONS .... ............... ............................... ........4-1
4.1 Organizational Structure....................................................................... ..4-1
4.2 Staffing................................................................................................ .4-20
4.3 Procedures, Practices, and Policies..................................................... .4-27
4.4 Training and Human Resource Development .......................................4-37
4.5 Emergency Management Coordination ........ ....................... ....... ..... ......4-41
4.6 Code Enforcement, Fire Investigation, and Public Education................4-42
4.7 Performance Measures...................................................................... ..4-43
5.0 IMPLEMENTATION PLAN... ........................... ........... ............................ .......... .5-1
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EXECUTIVE SUMMARY
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EXECUTIVE SUMMARY
By its very nature, a consulting report often draws attention to and focuses on
organizational limitations, or "opportunities for improvement". We therefore feel obligated
to remind the reader at the beginning of the report that the fire and rescue service in
Clearwater has made so!id advances in the last few years and in our opinion, is
providing a very high level of emergency medical services to the population it serves.
Scope of Study
MGT of America was requested by the City of Clearwater to assist in a Quality
Improvement Audit of Fire and Rescue Services. As noted in the Request for Proposals
(RFP), the overarching purpose of the audit was to improve managerial effectiveness,
and would not include detailed work procedures. Services the City requested included
the following major items:
. comparison to other agencies;
. evaluation of the current service delivery approach and alternatives
that may achieve efficiencies and/or greater effectiveness;
. staffing options, deployment, and resource allocation alternatives;
. strengths and weaknesses, focusing on potential improvements that
may reasonably be made to policies and practices;
· opportunities to improve training and development within the
organization;
· evaluation of the Emergency Management Coordinator function as it
is currently structured;
. evaluation of current performance measures; and
. development of an implementation plan of study recommendations.
The dimensions of efficiency, effectiveness, and service delivery quality were to be
considered in the evaluation. As requested in the RFP, recommendations are based on
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Executive Summary
an analysis of costs and organizational needs, and their relationship to expected and
common standards in the industry.
Overview of Methodology
Our approach to performing this project reflects our understanding of the
specifications in the RFP. The key elements of our methodology included:
Il.
. Stakeholder Input: Interviews with individuals from City
Administration and Fire and Rescue Department personnel.
. Document Review: Review of documents made available to MGT
. Practical Solutions: Development of practical recommendations
based on the above and the judgment of our experienced fire
services staff.
Maior Study Elements
. Confirmed, with City staff, the project's background, goals, and
expectations
. Collected and reviewed existing operational data, organizational
charts, agreements, relevant policies and procedures, prior studies,
audits, and reports
. Identified strengths, issues and concerns of City administrative and
Department personnel
. Visited and reviewed facilities, equipment and apparatus, and
community exposures and hazards
. Evaluated trends, services, issues and costs
. Identified opportunities for improvement of effectiveness and
efficiency
Maior Findings
.
The Department has received an award from the County for prompt
response and action on cardiovascular responses.
.
The Department has completed the "Fire and Emergency Services
Self Assessment & Accreditation Program."
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Executive Summary
. The Department currently has an insufficient number of senior Chief
Officers to provide adequate senior management for "on call"
availability on a 24/7/365 basis.
. The current organization does not currently provide sufficient senior
management to adequately focus on certain Department functions.
. The current organization does not provide management presence on
a 24/7/365 basis.
. The organizatiol1 of current emergency response assets appears to
lack sufficient flexibility to carry out the wide variety of emergency
functions that may be addressed.
. The current organizational structure level can result in a situation
where the least experienced officer in the Department is in command
of an incident pending arrival of a Chief Officer.
. There are few opportunities for company officers to gain
administrative experience beyond command of their individual
company.
. The current placement of the Emergency Management function
within the Fire Department does not seem ideal to carry out the
critical function of coordination among City departments and County
officials.
. District command officers appear to be burdened with administrative
detail functions that could be handled by a lower rank.
. Command officers at emergency incidents are burdened with too
many detail functions.
. Staffing of Advanced Life Support (ALS) units seems unnecessarily
complex and costly.
. Given the excellent mutual-aid program in effect, and the
forthcoming additional Engine Company, the current overall staffing
for the Clearwater Fire and Rescue Department is adequate.
. Some re-organization and re-assignment of current resources would
offer opportunities for more effective delivery of services.
. The Department's pre-incident planning program is well designed.
.
Some issues from the Dolphin Cover fire appear unresolved.
.
The apparatus replacement program has significantly upgraded the
condition of the Department's apparatus, but issues regarding long
term planning remain.
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Executive Summary
. The Department receives more than twice as much aid from
surrounding communities as it provides those communities.
. The Department has instituted a new improved recruit training
program as the result of a labor/management effort.
. There are signs that Department fireground discipline has broken
down.
. There is evidence that station personnel feel isolated from the
Department's administration.
. The Department's life Safety Inspector's are surveying all
commercial/industrial occupancies/multi-residential properties within
the City to assign risk-driven inspection cycles to those occupancies.
Maior Recommendations
. Realign the Fire Department into three Divisions, with a Deputy
Chief as Commander of each Division:
life Safety and Fire Investigation Division
- Support Services Division
Emergency Operations Division
. Reassign the Assistant Chief positions:
_ Platoon (shift) Commander of all on duty emergency operations
(3 positions, one per platoon)
_ Assistant Emergency Operations Division Commander/
Emergency Medical Service Coordinator (1 position, reporting to
the Emergency Operations Division Deputy Chief)
. Delete the District Chief position and reassign those functions, as
well as the duties of the current Operations Assistant Chief, and
additional administrative duties (as deemed desirable by the Fire
Chief) to the new Platoon Commander position.
. Establish nine new "Fire Captain" positions:
_ Command "Task Forces" established at Stations 45 and 48 (6
positions)
- Serve as "Incident Management Adjutants" (3 positions)
. Re-align 2 stations in a "Task Force" configuration:
. Establish a new "Incident Management Adjutant" position
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Executive Summary
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1 assigned to each Platoon Commander (3 total positions)
Functions:
*
Serve as immediate Incident Command staff for incident
management (e.g., Resource Status, Situation Status,
Documentation)
*
Reduce administrative work load for Platoon Commander
*
Serve as additional fire fighter for unusual rescue or fire
fighting situations
.
Reduce the number of lieutenant positions to compensate for the
recommended new Captain's position.
.
Establish 4 new "Special Assignment Captain" positions:
- life Safety and Fire Investigation Area Commander (two
positions for two "Areas")
- Safety Officer (1 position)
- Training Officer (1 position)
.
Delete 2 Investigator positions
.
Delete the position of Training Coordinator and the reassignment of
the duties to the recommended Training Officer.
.
Move the Emergency Management function to the Assistant City
Manager's Office.
.
Reassign Administrative Support Positions to report directly to the
Fire Chief
.
Require that future hires for Chief Officer positions have credible
experience in both fire protection and emergency medical services.
.
Staff all Engine Companies with three personnel, including a
lieutenant, Driver-Operator, and Firefighter (or, preferably a
Firefighter-Paramedic)
.
Deploy a Rescue Unit to all stations
.
Delete the "Lead Paramedic" position and increase the number of
Paramedics from 27 to 50.
.
Modify current deployment of Paramedics to place one on each
Rescue and one on each Engine Company.
.
Initiate a Comprehensive Community Fire Protection Master Plan
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Executive Summary
. All of the following issues not accomplished since the Dolphin Cove
fire should be addressed immediately:
- If in fact, the Clearwater fire and rescue standard operating
guidelines support the use of elevators when investigating fires
reported above the 5th floor, as indicated in the USFA Dolphin
Cove Fire Report, this should be rewritten to indicate that no
elevator should be used until fire personnel have determined that
it is safe to do so.
The policy M diminished response to automatic fire alarms,
should be reexamined by the Clearwater Fire and Rescue
Department
- Stronger support for command officers should be established
through the establishment of an "Incident Management
Adjutant's" position.
Radio communications failures at the Dolphin Cove fire should
be jointly investigated by the Fire and Rescue Department and
the County Dispatch Center and "fixes" initiated
The Department should provide increased focus on the abilities
of it's officers to perform command and control duties at larger
incidents through formal "evaluations" done by senior officers,
promotional selection criteria and officer training
The Clearwater Fire and Rescue Department should initiate a
study to determine the cause for Clearwater's apparent
disproportionate use of the County mutual aid program.
- The Department should conduct a blind interview program with
recruits and their officers to evaluate their new recruit training
program.
Re-assign responsibilities for City Emergency Management and
Planning to the office of the Assistant City Manager
Implement a "self-inspection" program for certain occupancies.
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1.0 INTRODUCTION AND
SCOPE OF WORK
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1.0 INTRODUCTION AND SCOPE OF WORK
MGT of America was requested by the City of Clearwater, following a competitive
bid process, to assist in a Quality Improvement Audit of Fire and Rescue Services. As
noted in the Request for Proposals (RFP), the overarching purpose of the audit was to
improve managerial effec\tiveness, and would not include detailed work procedures.
Services the City requested included the following major items:
. comparison to selected agencies in terms of staffing, stations, and
costs;
. evaluation of the current service delivery approach and alternatives
that may achieve efficiencies and/or greater effectiveness;
. staffing options, deployment, and resource allocation alternatives;
. strengths and weaknesses, focusing on potential improvements that
may reasonably be made to policies and practices;
. opportunities to improve training and development within the
organization;
. evaluation of the Emergency Management Coordinator function as it
is currently structured;
. evaluation of current performance measures; and
. development of an implementation plan of study recommendations.
The dimensions of efficiency, effectiveness, and service delivery quality were to be
considered in the evaluation. As requested in the RFP, recommendations are based on
an analysis of costs and organizational needs, and their relationship to expected and
common standards in the industry.
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2.0 METHODOLOGY
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2.0 METHODOLOGY
2.1 Overview of Methodology
Our approach to performing this project reflects our understanding of the
specifications in the RFP. The key elements of our methodology included:
. a clear under~tanding of the project background, goals and
objectives, and the complex issues that had to be addressed;
. a work comprehensive, well-designed, and practical work plan that
provided ample opportunity for stakeholder input; and
. sufficient resources and a commitment to complete the project
successfully within the desired time frame and at a reasonable cost.
Stakeholder Input. In order to perform a comprehensive review, it is critical to
receive quality information from City staff and Fire and Rescue Department members.
Accordingly, our approach included interviews with individuals from these areas who
would have valuable information to communicate to the study team.
Practical Solutions. Our ultimate goal has been to provide the City with a
management tool that can be used now and in the future to improve the efficiency and
effectiveness of fire services programs. Thus, our approach concentrated on developing
practical recommendations.
Proiect Coordination and Manaaement. A successful management review
requires special efforts to ensure that all functions receive adequate levels of review,
that team members do not duplicate each other's work, and that findings and
recommendations are thoroughly coordinated. We have found that the keys to ensuring
that all of these actions are accomplished are:
.
the development and adherence to a project work plan;
.
clearly assigned project team assignments in terms of work activities
and work products;
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Methodology
. frequent project team debriefing meetings to share project findings
and ideas; and
. frequent communication with the client to explore tentative findings.
2.2 Maior Study Elements
The first portion of the study included the development of, and agreement on, a
Project Action Plan. Developing an action plan is a standard approach in MGTs
studies. As a result of this approach, we avoid surprises that may otherwise occur. You
We take methodological issues seriously and have a long history of success in creating
comprehensive, on-target, and mutually agreeable approaches to projects.
In the first major portion of the study, following the development of the Project
Action Plan, we addressed the documentation and assessment of the existing
operations of the City of Clearwater Fire and Rescue Department. This documentation
and analysis provided a base of information upon which recommendations for action
have been based. MGT met with all appropriate individuals in a cooperative data
gathering work effort.
The second major portion of the study was to create a series of recommendations
designed to result in strategic and systemic organizational efficiencies and
improvements to the delivery of fire services in the City. Recommendations have been
balanced between the most desirable level of services and the cost-effectiveness of
delivering those services. MGT is sensitive to the demands of the fire service and the
limitations of public funding for critical services.
The third major portion of the scope of work has been the preparation of the
analysis, draft report, and final report.
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Methodology
2.3 Work Plan
Our project work plan consisted of seven tasks. It will serve as an overview
model. For each task, we have identified the objectives to be achieved, the specific
activities that performed, and the project products. Exhibit 2-1 provides an overview of
each phase and task. Immediately following is our detailed work plan. The methodology
presented here is an overlay approach to the task objectives noted in the RFP. All of the
areas of interest in the RFP have been reviewed and evaluated against the overlay of
the methodology.
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Methodology
EXHIBIT 2-1
CITY OF CLEARWATER FIRE AND RESCUE DEPARTMENT
WORK PLAN OVERVIEW
PHASE I:
INITIATE PROJECT
TASK 1.0
Confirm Project Work Plan
T
PHASE II:
OBTAIN STAKEHOLDER INPUT
PHASE III:
PREPARE ANALYSES AND
DEVELOP CORE STRATEGIES
PHASE IV:
PREPARE FINAL REPORT
TASK 2.0
TASK 4.0
TASK 7.0
Conduct Leadership Interviews
TASK 3.0
Evaluate Current Trends, Services, Issues,
and Costs
Prepare, Discuss, and Present Final Report
Capture Input from the Fire and Rescue
Department
TASK 5.0
Recommend Efficiencies for Fire Services
TASK 6.0
Prepare and Discuss Major
Recommendations
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Methodology
"
rASK1.0: CONFIRM PROJECT WORK PLA
Objectives:
. Meet with City staff to gain a comprehensive understanding of the project's
background, goals, and expectations.
. Identify, in greater detail, the specific objectives for the review, and assess
how well this initial work plan accomplishes those objectives.
. Establish a mutually agreed-upon project work plan, time line, deliverables,
and monitoring procedures that will lead to the successful accomplishment of
all project objectives.
. Collect and review existing operational data, organizational charts,
agreements, relevant policies and procedures, prior studies, audits, and
reports.
Activities:
1.1 Met with City officials to establish working relationships, make logistical
arrangements, determine communication lines, and finalize contractual
arrangements.
1.2 Discussed the objectives of the project.
1.3 Identified policy and issue concerns to be addressed during the review.
1.4 Gained historical perspective and background on the issues facing the City of
Clearwater.
1.5 Obtained pertinent reports and background materials relevant to the review, such
as:
.
demographic and other data related to community growth and
development;
.
capital and operational budgets for the current and last few fiscal
years;
description of the current fire service delivery systems, organization,
and staffing levels;
.
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Methodology
. organization charts and current and historical staffing data for the
Fire and Rescue Department;
. relevant policy and procedures manuals;
. location and description of stations and facilities;
. existing performance indicators or similar data used to plan, budget,
and measure labor requirements and/or performance;
. descriptions of staff scheduling and deployment in meeting service
demands at targeted service levels;
. previous management and organization studies related to fire
services organization, staffing, or performance.
1.6 Reviewed the original work plan to finalize the time lines for each project task with
the Project Manager. Finalized the:
. primary tasks to be performed
. project team assignments
. schedule and timetable
. how results are to be evaluated
. resources to be used in the study
. possible study obstacles or areas of concern.
Deliverable:
. Revised Project Work Plan, as needed
II~ TASK 2.0: CONDUCT LEADERSHIP INTERVIEWS . ..
. ..~
Objectives:
.
Identify expected service levels for fire services.
Identify opinions of City management and other officials concerning the
operations and performance of the Department.
Identify issues and concerns of officials regarding fire services.
.
.
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Methodology
Activities:
2.1 Worked with the Project Manager to finalize the interviewee list that included City
management and Fire and Rescue Department staff.
2.2 Drafted a comprehensive interview guide.
2.3 Established a final interview schedule convenient to all parties.
2.4 Met with other City staff in related or relevant departments, such as legal and
personnel staff.
2.5 Conducted interviews as scheduled.
2.6 Analyzed interview results.
2.7 Developed summary report of interviews.
Deliverable:
. Summary of interviews identifying expressed views towards existing fire
services programs, service levels, strengths and weaknesses, and related
issues
TASK3:0:fCAPTURE INPUT FROM THE FIRE AND RESCUE f DEPART.
Objectives:
. Identify ideas regarding RFP noted issues.
. Identify strengths and weaknesses as perceived by the Fire and Rescue
Department and other service providers.
Activities:
3.1 Developed an issues list for discussion at the departmental level.
3.2 Developed interview guides for individual follow-up interviews with Fire and
Rescue Department management personnel to capture critical observations.
3.3 Conducted interviews of Fire and Rescue Department at the management level, to
include the Deputy Chief of Administration and the Deputy Chief of Operations.
3.4 Conducted interviews with administrative managers, Fire Marshal, Assistant
Chiefs, and District Chiefs.
3.5 Conducted interviews with groups of employees. Determined the concerns of
personnel relative to the key issues.
3.6 Visited and reviewed facilities, equipment and apparatus, and community
exposures and hazards. Traveled through the community with Fire and Rescue
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Methodology
Department assigned personnel to discuss response issues, trends, and
demands.
3.7 Reviewed feedback obtained from these interviews.
Deliverable:
. Identification of significant issues and concerns with fire service delivery
TASK 4.0: ... EVALUATE CURRENT TRENDS, SERVICES, ISSUES, AND COSTS .
Objectives:
. Develop a clear understanding of the organizational structure, operations,
response policies, objectives, functions, limitations, achievements, and
opportunities for improvement of the fire services programs of the Fire and
Rescue Department.
. Collect detailed cost information.
. Identify service delivery trends in the City.
Activities:
4.1 Requested appropriate operational and financial information and cost data from
City Officials and Fire and Rescue Department management and staff not already
obtained in Task 1.0. Such information and data included:
.
.
.
run data and call loads;
response times;
equipment and facilities;
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Methodology
. budget data;
. schedules and hours of work;
. performance measures and workload statistics;
. personnel and operational costs and budget data;
. revenue data; and
. other anticipated costs relevant to the analysis.
4.2 Assessed revenue issues that emerged.
4.3 Evaluated financial i~plications in reference to operational issues.
4.4 Confirmed the current level of service being provided by the Fire and Rescue
Department.
4.5 Evaluated areas of analysis noted in the RFP.
4.6 Assessed any problems associated with operations to include policies, major
procedures, staffing, organizational structure, responsiveness, duplication of
activities, and unnecessary activities.
4.7 Evaluated existing relationships and agreements.
4.8 Reviewed the operational cost-effectiveness of the current level of services.
Deliverable:
. A report component that evaluates current trends in the City, current issues
impacting service delivery, and current costs. This will be an assessment of
the existing operations of the Department
RECOMMEND EFFICIENCIES FOR
Objectives:
. Build on our understanding of the current structure, operations, response
policies, objectives, functions, limitations, achievements, and opportunities for
improvement.
. Identify the most cost-effective and/or the most efficient use of available
resources to produce the desired level of services.
. Build a series of recommendations focused on achieving an efficient and
effective fire services delivery system.
Activities:
5.1 Based on input from officials and the Fire and Rescue Department, and others
noted, analyzed current trends and issues, and operational and financial data.
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Methodology
5.2 Identified a recommended level of services for current areas of coverage and
population.
5.3 Evaluated financial implications in reference to operational issues.
5.4 Determined if there are any opportunities where resources may be shared in order
to provide services at a reduced level of cost or to improve services.
Deliverable:
. A report comporient that addresses the desired level of services in the City in
consideration of current service needs, with a series of recommendations
focusing on critical aspects of fire services delivery in the City
TASK 6.0: PREPARE AND DISCUSS MAJOR RECOMMENDA TlONS
Objective:
. Prepare a set of recommendations that identifies the critical action steps to
ultimately achieve the recommended structure and service levels for fire
services in the City.
Activities:
6.1 Built upon operational and supporting financial information to establish the most
appropriate management and administrative structure.
6.2 Determined the most effective long-range strategy to deliver fire services and
identified the most appropriate deployment of resources.
6.3 Determined the most cost-effective and efficient approach toward programs
needed in the City.
6.4 Ensured that recommendations address all areas of concern, including
management functions, personnel management and job assignments, staffing,
performance measures, and service delivery methods.
6.5 Evaluated financial implications in reference to operational issues.
6.6 Discussed major recommendations with key management and personnel to
ensure understanding and to modify recommendations to fit the needs of the City.
Deliverable:
. A report component that recommends systemic changes and action steps
needed to accomplish the recommended course of action
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Methodology
II TASK 7.0: .... PREPARE, D/SCUSS,AND PRESENT FINAL REPORT' ..........11
Objectives:
. Document the results of all previous tasks into a readable, comprehensive
written report.
. Present the results of the study to City officials.
Activities:
7.1 Prepared a draft report on the results of all previous tasks. The report contained:
. executive summary of findings and recommendations;
. cost estimates;
. task methodology and activities;
. findings for the various tasks; and
. report components addressing specific RFP questions.
7.2 Reviewed the draft report with the designated Project Manager, City management,
and other officials.
7.3 Revised the draft report where appropriate.
7.4 Prepared and issued the Final Report.
Deliverables:
. Draft Report
. Final Report
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3.0 CURRENT SITUA TION
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3.0 CURRENT SITUA TlON
3.1 Overview of Current Services
3.1.1 Fire and Emerqencv Medical Services
The Clearwater Fire and Rescue Department serves a fire protection district of
forty-two and a half squar~ miles with a permanent population of approximately 133,000
residents. The community is currently served by seven (7) fire stations, although one
additional fire station is under construction with expected completion in 2004. The
stations provide four to six minute response times throughout the City. The Department
provides non-emergency and emergency response services including Fire Prevention,
Public Fire and Life Safety Education, Emergency Management, Advanced Life Support
(ALS) Rescue, Fire Suppression, Heavy Rescue and Extrication, and Marine Rescue.
The Department also responds with two Aerial units and one Squad/Heavy Rescue/Air
supply unit.
There are two Deputy Chiefs, six Division Heads, and support staff. Each division
(Operations, Safety and Employee Development, Life Safety Management, EMS,
Personnel/Projects, and Finance) is headed by an officer. Line personnel work twenty-
four shifts.
In August 2003, the Clearwater Fire and Rescue Department became an
Accredited Fire Agency. The Department responds to approximately twenty-three
thousand calls for service annually. About eighty-five percent of the total calls are
requests for Emergency Medical Services.
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Current Situation
EXHIBIT 3-1
CLEARWATER FIRE DEPARTMENT
CURRENT ORGANIZATION CHART
Fire Chief
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Deputy Chief Deputy Chief
Administration \ Operations
I I I
Fire Support Admin Fire Assistant Assistant Assistant
Manager Support Marshal"'''' Chief Chief Chief Safetyl
Manager EMS Operations Emp. Dev.
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Personnel Staff Emergency Shop Training
Mechanic Chief
Technician Assistant --- Management'"
(3)
Management Accounting Atg/Supply
Assistant Chief Technician
Analyst Technician Prevention
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Staff Assistant Inspector Public Ed. District Chief Lieutenant District Chief
(2) f--
I (6) Spec. (2) 45 (3) Rescue (3) 48 (3)
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Investigations I
(2)
Stations Stations
44,45,46,47
48,49,50,51
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Fire Fighter Fire Fighter
Personnel (58)
EMS Personnel Personnel (61)
(24) EMS Personnel
(18)
Fire Department personnel - 202.0
*Emergency Management will only have FTEs when conditions warrant
.... An Arson Investigator is shown on Police organization chart
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Current Situation
3.1.2 Emergency Management Division
The Fire Marshal directly oversees the emergency management function, and
serves as the city's Emergency Coordinator. Pinellas County's Department of
Emergency Management Division coordinates emergency operations to ensure a
cooperative effort in response to all aspects of potential disasters. The objectives of the
plan include the following: \
. To minimize suffering, loss of life, personal injury, and damage to
property resulting from emergency and disaster conditions;
. To minimize disaster-related material shortages and service system
disruptions which would adversely affect the City's residents and
economy;
. To provide immediate relief for the community and enhance short
and long-range recovery following a disaster;
. To provide training and support to enable City personnel to respond
adequately to disastrous situations.
Florida law (F.S. 252) requires that the city conform to the county plan.
3.1.3 Fire Prevention
Six Fire Inspectors work directly under the Fire Marshal, with a goal of inspecting
the City's 13,000 commercial establishments, thus ensuring that businesses comply with
and follow the fire codes and life safety regulations that are required by law. Inspectors
inspect properties such as day care centers, schools, nursing homes, and assisted living
facilities on an annual basis. Fire inspectors also review plans for Clearwater's buildings-
in-progress, in efforts to help make all future commercial buildings as fire "resistant" as
possible.
The number of actual structure fires within commercial and residential properties
in Clearwater over the last several years is noted in Exhibit 3-2.
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EXHIBIT 3-2
TOTAL STRUCTURE FIRES REPORTED
CITY OF CLEARWATER, FLORIDA
1997
1998
148
1999
136
2000
116
2001
131
2002
133
2003
151
3.1.4 Fire Investiqation
The Police / Fire Investigator carries out this aspect of Fire Prevention. The
position works closely with the fire department during the investigation of fires and the
act of incendiary causes. The division works cooperatively and jointly with the Police
Department.
3.1.5 Public Education
The Department's Office of Public Education provides information and training in
the prevention of fire and other life threatening injuries. The office focuses on the safety
and fire prevention education for all citizens of Clearwater.
The Public Education staff provides programs and training on the following fire-
related and life-safety topics.
. Fire Prevention in Your Home
. Fire Safety for Senior Citizens
. Ten Tips for Fire Safety
. Fire Education Saves Lives
. A Safety Village Learning Experience
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Current Situation
. The Vial-of-Life Program
. Living Safely with Electricity
. The "Ufe Saver" - A Working Smoke Detector
. How to Escape and Survive a Fire
. Fire Safety Practices for the Physically Challenged
. A Fire Safe Kitchen
. Mobile Home Fire Safety
. Emergency Treatment of Burns
. Detecting Home Fire Hazards
. Apartment and Condominium Fire Safety
. High Rise Building Fire Emergency Practices
. Baby Sitting Fire Safety Requirements
. CPR - Adult, Infant and Child
. Using Fire Extinguishers the Right Way
. Evacuation and Fire Drill Procedures
. Motel and Hotel Fire Safety
. Holiday Fire Hazards and Safety Tips
. Fire Safety in Health Care Facilities
. Outdoor Camping Fire Safety Practices
. Fire Safety for Children - PreSchool and Elementary
. Injury Prevention for Teens and Young Adults
. Fire Safety in the Workplace
. First Aid - 'Till Help Arrives
. Drowning Prevention and Home Pool Safety Evaluations
. Fall Prevention
3.1.6 Safety Village
Safety Village is a small-scale village located next to the fire station at 1450
Lakeview Road. Its purpose is to provide a place where young children, ages four
through twelve, can practice life safety skills. Safety Village is a learning laboratory
where safety skills are taught and practiced.
3.1.7 Community Emerqency Response Team (CERn
There are two ongoing teams of CERT trained volunteers. They have been trained
in accordance with the Federal Emergency Management Agency CERT Participant
Handbook. Training areas include disaster preparedness and hazard vulnerability
analysis, basic fire suppression, medical treatment strategies for life-threatening
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Current Situation
conditions, principles of triage, patient assessment and stabilization, search and rescu~
priorities, resources, techniques and limitations.
3.2 Comparison Data
Findings:
The study team was requested to capture comparative data from other
municipalities on selected aspects of the fire service. The comparative municipalities
were chosen accordin~ to comparison cities that Clearwater included in a compensation
survey for the position of City Manager. Using cities only within the Tampa area that
were used for the compensation analysis for general employees was viewed by the
study team as too restriCtive for the purposes of comparison. The selected cities are
similar in population, which impacts operational requirements for major services such as
fire and EMS. In terms of the EMS capabilities of the comparison cities, the following
applies:
. Cape Coral: ALS non-transport
. Coral Springs: ALS transport
. Fort Lauderdale: ALS transport
. Gainesville: ALS non-transport
. Hollywood: ALS transport
. Miami Beach: ALS transport
. Sunrise: ALS transport
. Pembroke Pines: ALS transport
. Tallahassee: To begin ALS non-transport 4/1/04
As viewed in the following comparison table (Exhibit 3-3), the following items are
of interest:
. The number of firefighters per capita is slightly higher (821) in
Clearwater than the average (738) of the comparison cities.
.
The number of civilian positions per capita is lower (6,333) in
Clearwater than the average (8,813) of the comparison cities.
.
The number of chief officers per capita is slightly higher (14,777) in
Clearwater than the average (12,839) of the comparison cities.
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Current Situation
. The average "first-in" time for Clearwater (3.6 minutes) is lower than
the average (5.3) of other surveyed municipalities.
Overall, it is observed that the number of chief officers and firefighter staff is
somewhat lower than the staffing for the compared cities. The difference is not
significant and should not be a factor in establishing staffing levels, given the significant
number of variables that i~pact staffing. The number of career firefighters reported in
the comparison cities ranges from 135 to 383. Of import is the environment within which
the City of Clearwater operates, with closest unit response in Pinellas County. The
response times reported by the City of Clearwater appear excellent in reference to other
communities around the state of Florida.
EXHIBIT 3-3
COMPARISON DATA FOR FIRE SERVICES
Pembroke Fort
AGENCY (1000s) Hollvwood Sunrise Tallahassee Pines Gainesville Cape Coral Lauderdale Clearwater
POPULATION 140,000 89,000 252,000 150,000 111,000 120,000 178,000 133,000
AREA SERVED 43.00 42.50
#CAREER FF 224 135 248 200 141 139 383 162
CAPIT AlFF 625.00 659.26 1,016.13 750.00 787.23 863.31 464.75 821.00
#CIVILlAN 25 17 14 15 9 8 30 21
#CHIEF OFCRS 13 11 8 10 11 4 24 9
CAPITAlCH OF
# CAPT/L T 61 33 63 35 29 25 99 33
CAP IT AJCO OF
AO 45 33 72 30
AVG ENG STAFF 3 3 3 3 3 3 3
LDR/TRK STAFF 2 2 3 3 4 3 3
AMB.lRESCUE 3 2 NA 3 NA 2 2
STAFFING
HAZMA T VEH 1 NA NA NA NA NA
#ON-DUTY CMD 1BC 1+ResLt 1 +4BattCapt 2BattCapt+ 2DistChf 2BattCpt 2BC 2BC
2ResSup
AVG 1ST-IN TIME 5.65 5.17 5.96 4.5 4.93 5.62 4.47 3.6
# EITIR/O 6/3/7/HM 51? 15/4 6/2/7/0 5/2/0/Q&AFF 7/2/6/1
HAZMAT Yes Yes Yes No Yes Yes No
CONFINED SPACE Yes Yes Yes NO Yes Yes
SWIFT WATER RES No No Yes No No Yes
USAR No Yes Yes No Yes No
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Current Situation
EXHIBIT 3-3 (Continued)
COMPARISON DATA FOR FIRE SERVICES
Pembroke Fort
AGENCY (1000s) Hollvwood Sunrise Tallahassee Pines Gainesville Cape Coral Lauderdale Clearwater
EMER MGMT Yes Yes Yes Yes Yes Yes Yes
CO FIRE PREY? No Cas Cas Yes(4) No No No
2000 FIRE RESP 652 1643 7079 2492 1175 3853
2000 EMS RESP 17,784 6564 14496 10,172 6,287 22,994 15,517
2000 OTHER 5,902 t 19381 ? 3,132 2,828 3,461
2000 TOTAL 24,338 18588 21575 15,796 10,290 22,898
2001 FIRE RESP 672 1281 7591 2,560 1,295 3,851
2001 EMS RESP 16,512 6918 15896 10,926 6,747 21,510 15,847
2001 OTHER 7,132 9778 ? 2,642 3,166 3,271
2001TOTAL 24,316 17977 23487 16,128 11,208 23,132
2002 FIRE RESP 576 2,242 1214 7872 2,312 750 3,614
2002 EMS RESP 16,586 7,381 7296 16538 9,264 7,065 25,000 15,528
2002 OTHER 6,904 1,873 8993 ? 1,766 3,266 3,192
2002TOT AL 24,066 11,501 17303 24430 13,342 11,081 22,449
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4.0 FINDINGS AND
RECOMMENDA TIONS
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4.0 FINDINGS AND RECOMMENDA TIONS
4.1 Orqanizational Structure
4.1.1 Findinqs
4.1.1.1 Insufficient Number of Senior Manaaement Positions
The Department currently has an insufficient number of senior Chief Officers to
L
provide adequate senior management for "on call" availability. There should be a
member of senior Department management (Fire Chief/Deputy Fire Chief), available for
immediate response, from a location proximate to the City on a 24/7/365 basis.
Currently there are two Deputy Chiefs, in addition to the Fire Chief. This number is
inadequate to provide senior management "on call" availability. These senior Chief
Officers should be available for:
. Reinforcement of incident management at major incidents
. Administrative advice regarding Department policy issues
. Serving as the fire representative at the City's Emergency
Operations Center
. Backup for the proposed Platoon Commander (see 4.1.2.2)
In the context of this report, senior management (senior chief officer), is
considered to be the rank of Deputy Chief and Fire Chief. "Management" is considered
to be the Assistant Chief level and above. All ranks below Assistant Chief are members
of the bargaining unit and as such are not considered part of management. Company
and task force officers are considered "intermediate officers",
4.1.1.2 Excessive Functional Span of Control for Manaaement Positions
The current organization does not provide sufficient senior management to
adequately focus on certain Department functions. The current Deputy Chief of
Operations commands all emergency response functions, training, employee safety,
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Findings and Recommendations
EMS coordination, fleet maintenance, supply, and employee development. The othe~,
current Deputy Chief position commands the fire safety inspection functions, the building
program, payroll functions, human relations, accounting functions, emergency
management, fire investigation and the public education program.
The Deputy Chiefs' span of control, while not unreasonable in terms of number of
direct reports, is extremely-'broad in the functional diversity covered. Further, we believe
that such areas as "Employee Safety", "Employee Development", and "Training" should
not be in the same chain of command as "emergency operations". The functions of fire
safety inspections, public education, and fire investigation are arguably on the same
level of significance as" emergency operations" and should be so recognized in the
organization.
4.1.1.3 Insufficient Manaaement Development Potential
The current organization does not provide sufficient breadth of positions to provide
desired management development. There are only two positions for Deputies currently,
Operations and Support Services, to cover all Fire Department functions.
4.1.1.4 Lack of Manaqement Full- Time Presence
The current organization does not provide management presence on a 24/7/365
basis. The position of District Chief is part of the bargaining unit and it is therefore
unreasonable to expect the position holders to represent management, especially with
the current adversarial situation between the union officers and the Department! City
management. This can, and reportedly has, led to certain decisions being made with a
labor bias.
4.1.1.5 Lack of Flexibilitv to Carry Out the Breadth of Functions
The current emergency response assets appear to lack sufficient flexibility to carry
out the wide variety of emergency functions which may be addressed. The staffing of
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Findings and Recommendations
most fire departments (including Clearwater) is not adequate for all tasks that could be
assigned, e.g.
. A complex search and rescue mission
. The need to quickly raise several ground ladders
. The need to put portable heavy stream appliances into service,
some distance from the apparatus
No single unit on the Department has sufficient staffing to carry out these functions
in a timely fashion.
4.1.1.6 Less Experienced Officers in Charqe of Incidents
The current organizational structure level can result in a situation where the least
experienced officer in the Department is in command of an incident pending arrival of a
Chief Officer. The current organizational structure of the emergency response units
results in officers of equal rank being on-scene of multi-company incidents unless/until a
Chief Officer arrives. The command issue (who is in charge) is typically settled by the
first arriving officer (currently a Lieutenant) functioning as the Incident Commander until
the arrival of a higher ranking officer. This could result in the least experienced officer
on the Department being in charge pending arrival of a Chief Officer. A Chief Officer
may not be dispatched on the original alarm depending on the type of incident. This
would place the least experienced officer in charge even longer.
4.1.1.7 Limited Opportunity for Command Experience
There are few opportunities for company officers to gain administrative experience
beyond command of their individual company. The company officers of the Department
see themselves as company officers, in charge only of their own crews and not as
command officers at large scale incidents commanding other company officers. This
results in less than desired command functions pending arrival of a Chief Officer.
Currently there are no administrative staff positions for company officer level personnel.
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Findings and Recommendations
4.1.1.8 Unsuitable Placement of Emerqencv Manaqement
The Emergency Management function is typically a position of coordination
between all City agencies and the County. There is some indication that such
coordination efforts have not been fully successful in Clearwater. The current placement
of that position within the Fire Department does not seem ideal to carry out the critical
function of coordination among City departments and County officials.
4.1.1.9 Lower Level Functions Assiqned to District Chiefs
District command officers appear to be burdened with administrative detail
functions that could be handled by a lower rank. Examples include roster and personnel
assignments (for review and approval by Chief Officer), shift log, overtime needs and
hiring for review and approval by Chief Officer, sorting of station intra-department mail,
routine report processing, payroll vouchers, station equipment checks, station
maintenance messages.
4.1.1.10 Excessive Functions for Command Officers On-Scene
Command officers at emergency incidents are burdened with too many detail
functions. These include the status of resources on the scene, status of the incident
itself, documentation of command actions, and radio monitoring
4.1.1.11 Complex and Costlv ALS Unit Staffinq
Staffing of Advanced Life Support (ALS) units seems unnecessarily complex and
costly. There does not appear to be an administrative or medical need to have a
"Senior" Paramedic on each ALS unit. Typically, in the U.S. fire service, if there is more
than a single paramedic on a unit, the paramedic with the most ALS experience is in
charge
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Findings and Recommendations
4.1.1.12 Perception of Limited Fire Manaqement Experience
There is some feeling on the part of rank and file that the Fire Chief lacks
experience in fire protection. This apparently feeds the management credibility issue.
This opinion was derived from interviews with Department personnel
4.1.2 Recommendations
4.1.2.1 Restructure the Fire Department
The consulting team recommends that the department restructure operations in
accordance with Option A, as noted in Exhibit 4-2. This restructuring will generate a
number of benefits, as described below, including greater flexibility, adequate
management capacity, upward mobility, and improved fire response capacity, The next
few pages identify the current organization chart (Exhibit 4-1), the recommended
organization chart (Exhibit 4-2, or Option A), and an optional organization model (Exhibit
4-3, or Option S). The Option "S" Chart illustrates an option which again recommends
reorganization, creating an additional Deputy Chief and reassigning the various duties of
the current Deputy Chief positions among the three recommended Deputy positions as
indicated in Option "A". It continues the two District organization, replacing District
Chiefs with Assistant Chiefs and eliminating the "Safety/Employee Development"
Assistant Chief position. Option A is recommended.
This report recommends the realignment of the Fire Department into three
Divisions, with a Deputy Chief as Commander of each Division. The Deputy
assignments should be rotated on regular basis (every two to three years). The divisions
within the Fire Department would include:
. Life Safety and Fire Investigation Division;
. Support Services Division; and
. Emergency Operations Division.
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Findings and Recommendations
Personnel!
Payroll Clerk
ADMINISTRATIVE
ANALYST
Staff Fire
Assistants (3) Intern
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EXHIBIT 4-1
CURRENT ORGANIZATION CHART
FIRE CHIEF
ADMINISTRATIVE
Deputy Chief
Accounting
Technician
Life Safety Inspectors (2)
(PLANS REVIEW)
Fire Prevention
Inspector (1)
OPERATIONS
Deputy Chief
OPERATIONS AC
EMS Lieutenants (3)
One per Platoon
FLEET
MECHANICS
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: MECHANICS (2)
L___________________________
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Supervisor
Life Safety
Inspectors (7)
Public Education
and Information (2)
FLEET
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Arson Investigator -'
DISTRICT 45
District Chief
STATION
LIEUTENANTS (5)
44,45,46,47
STORE-
KEEPER
TRAINING
COORDINATOR
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DISTRICT 48
District Chief
STATION
LIEUTENANTS (5)
48,48,50
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EXHIBIT 4-2
OPTION "A" ORGANIZATIONAL CHART
.-
I FIRE CHIEF 1
ADMINISTRATIVE SUPPORT
Administrative Analyst (1)
Administrative Assistant (3)
I
FIRE SAFETY & INVESTIGATION EMERGENCY OPERATIONS SUPP0RT SERVICES
Deputy Chief (1) Deputy Chief (1 ) Deputy Chief (1)
Special Assignment Assistant
Chief (1) [EMSC]
AREA 1 INSPIINVEST AREA 2 INSPIINVEST SAFETY OFFICER TRAINING OFFICER
PLATOON COMMANDER AIB
Spec Assmt Capt (1) (FSIO) Spec Assml Capt (1) (FSIO) Spec Assmt Capt (1) (SO) Capt Spec Assml (1) (TO)
life Safely Insp (4) life Safety Insp (3) Assistant Chiefs (3)
Incid Mgmt Adj (3)
EMS lieutenant (3) PLANNING FINANCE
PUBLIC EDUCA nON PLAN CHECK Fire Support Mgr (1 ) Adm Spt Mgr (1)
Fire Intern Accounting Tech (1)
Pub. Ed. Spec (2) Life Safety tnsp. (2) ENG/RES 44 (AlBIC) TASK FORCEIRES 45 (AlBIC) Pers/payroll Tech (1)
Lt. (3) Drvr Opr. (3) Cap\. (3) FLEET MAINTENANCE STORES
Med (6) FF (3) Lt. (3) Med (6) Drvr Opr (6) FF (9)
ARSON Fteet Mech. Mgr (1) Storekeeper (1)
Police Detective ENG/RES 46 (AlBIC) ENG/RES47 (AlBIC) Fleet Mech (2)
(As Needed) L\. (3) Drvr Opr. (3) Lt. (3) Drvr Opr. (3)
Med (6) FF (3) Med (6) FF (3)
TASK FORCEIRES 48 (AlBIC) ENG/RES 49 (AlBIC)
Cap\. (3) Lt. (3) Lt. (3) Drvr Opr. (3)
Med (6) Drvr Opr (6) FF (9) Med (6) FF (3)
ENG/RES 50 (AlBIC)
Lt. (3) Drvr Opr. (3)
Med (6) FF (3)
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EXHIBIT 4-3
OPTION "B" ORGANIZATIONAL CHART
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I FIRE CHIEF I
ADMINISTRATIVE SUPPORT
I--
Administrallve Analyst (1)
Administrative Assistant (3)
,-,-
FIRE SAFETY & INVESTIGATION EMERGENCY OPERATIONS SUPPORT SERVICES
Deputy Chief (1) Deputy Chief ( 1 ) Deputy Chief (1)
[Fire Marshal) Special Assignment Captain (1)
[EMSO]
AREA 2 INSPIINVEST AREA 1 INSPIINVEST SAFETY OFFICER TRAINING OFFICER
Spec Assmt Capt (1) (FSIO Spec Assmt Capt (1) (FSIO) DISTRICT 45 AlBIC DISTRICT 48 AlBIC Spec Assmt Capt (1) (TO) Spec Assmt Capt (1) (TO)
Life Safely Insp (3) Life Safety Insp (4)
Assistant Chiefs (3) Assistant Chiefs (3) PLANNING FINANCE
Incid Mgmt Adj (3) Indd Mgmt Adj (3)
EMS Lieutenant (3) EMS Lieutenant (3) Fire Support Mgr (1) Adm Spt Mgr (1)
PUBLIC EDUCATION PLAN CHECK Fire Inlern Accounting Tech (1)
Pub. Ed. Spec. (2) Life Safety Insp. (2) Perslpayroll Tech (1)
ENG/RES 44 (NB/C) ENG/RES 46 (NB/C) ENGlRES 49 (NB/C) ENG/RES 50 (NBIC)
Lt. (3) Lt. (3) Lt (3) Lt (3) FLEET MAINTENANCE STORES
ARSON Mad (6), FF (3) Mad (6), FF (3) Mad (6), FF (3) Mad (6), FF (3) Fleet Mech. Mgr (1) Storekeeper (1)
DlVr Opr. (3) DlVr Opr. (3) DlVr Opr. (3) OM Opr. (3)
Police Detective Fleet Mech (2)
(as Needed) ENGIRES 47 (AlBIC) TRUCK 45 (NB/C) TRUCK 46 (NB/C) ENG/RES 46 (NB/C)
U(3) Lt (3) Lt. (3) Lt (3)
Mad (6), FF (3) FF (3) FF (3) Mad (6), FF (3)
OM Opr. (3) DlVr Opr. (3) OM Opr. (3) DlVr Opr. (3)
ENG/RES 47 (NBIC)
1I. (3)
Mad (6), FF (3)
DlVr Opr. (3)
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Findings and Recommendations
We recommend the establishment of an additional Deputy Chief position t~
command the "Ufe Safety and Investigation Division", and that this position be given the
title of "Clearwater Fire Marshal". The current Deputy Chief positions would command
the realigned Support Services Division and Emergency Services Division. It would be
desirable to rotate these assignments to provide career development for these officers.
The responsibilities of the Division Commanders would include, but not be limited
to:
. Ufe Safety and Fire Investiqation Division Commander:
- Fire inspection and investigation (two geographic "areas")
- Public Life Safety Education
Plan Checking (compliance with fire building codes in
cooperation with City Building Department)
Arson Investigation (utilizing a Police Department Detective on
an "as needed" basis)
. Support Services Division Commander:
Personnel Safety (at emergency and non-emergency duty
assignments, training operations, and Department facilities)
Training (coordination of all Department training)
- Facility Planning and Maintenance
Finance (payroll and personnel)
Stores (Department supply)
- Fleet Maintenance (vehicle maintenance and repair)
. Emerqency Operations Division Commander:
- Emergency response operations
- Emergency Medical Services Coordination (quality assurance)
. The Deputy Chiefs duties would include (but not be limited to):
- General administration of their respective Division;
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Findings and Recommendations
- Command of those incidents at which he/she is the senior officer
on scene or until a formal transfer of command is formally made
to another officer (and announced on the appropriate radio
channel);
NOTE: Not less than one Deputy Chief should remain in the City (or
immediately adjacent thereto), ready to respond to and take command
of, incidents to which they are dispatched. To ensure their availability,
the Fire Chief should establish an "On-Call Schedule" for the Deputy
Chiefs for 24/7/365 coverage. During normal business hours, the"
Operations Division Deputy Chief' should be dispatched and respond to
the scene of all incidents, within the city limits of Clearwater, at which
more than 7 companies are working on the scene (including mutual aid
companies). In the absence of the" Operations Deputy", or for any
reason that the "Operations Deputy" is unable to immediately respond,
the "On-Call Deputy "should be dispatched in those cases. In the event
that the "Operations Deputy" is the "On-Call Deputy", the next available
"Deputy Chief' should be dispatched. When ever a "Deputy Chief' is on
the scene of an incident, whether or not dispatched, he/she should be
assumed to be in command unless he/she announces, on an
appropriate radio channel, "Deputy Chief xxx, on the scene as an
observer".
- Assumption of the duties of Fire Chief when assigned those
duties in the absence of the Fire Chief.
Coordination with other city, county, state, or federal agencies
- Broad prioritization, scheduling and coordination of their
command's non-emergency activities.
The !:Joals for this recommendation are:
. To provide flexibility of assignment for the Deputy positions and to
provide for personnel development. To this end, assignments should
be rotated every 2 to 3 years. An additional advantage of this
procedure would be to encourage standard operating procedures.
. To provide sufficient senior officers for rotation of "on-call" duty.
. To provide senior management focus on specific functions of the
Fire Department, Le., fire safety inspection, fire investigation,
firefighter safety, personnel training and development, long-range
planning, finance, personnel matters, and fleet maintenance.
4.1.2.2 Reassiqn the Assistant Chief Positions
This report recommends, as a component of the reorganization, the reassignment
of the Assistant Chief FTEs:
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Findings and Recommendations
. Three would serve as Platoon Commanders in charge of all
emergency operations and resources on their assigned Platoon
( shift).
. One would serve as the Emergency Medical Service Coordinator (as
is currently the case).
The Platoon Commander will have seven (7) immediate subordinates (5
Lieutenants, 2 Captains). This is well within reasonable management limits and narrower
".
span of control than is the case in other fire departments.
It is recommended that the Emergency Management function which is currently
the responsibility of the Assistant Chiefs position under the current Support Deputy be
re-assigned to the Assistant City Manager's Office (See 4.1.2.8.) The Fire Marshal
functions should be assigned to the Life Safety and Fire Investigation Deputy.
The Special Assignment Assistant Chief (EMS Coordinator) will essentially
function as the current EMS Assistant Chief position and, in the absence of the
Emergency Operations Chief, carry out all those administrative functions. He may also
be assigned to function as an interim Platoon Commander for short periods of time (12
hours or less).
The qoals for this recommendation are:
. To provide management presence on a 24/7/365 basis.
. To provide a strengthened emergency management coordination
position
4.1.2.3 Eliminate the District Chief Position
This report recommends the elimination of the District Chief position and the
reassignment of those functions, as well as the duties of the current Operations
Assistant Chief, and additional administrative duties (as deemed desirable by the Fire
Chief) to the new Platoon Commander position (see 4.1.2.2). The current holders of the
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Findings and Recommendations
District Chief position should be made eligible to compete for the Assistant Chief and,
Fire Captain positions (see 4.1.2.2. and 4.1.2.4)
This alignment will provide a manager on a 24/7/365 basis.
4.1.2.4 Establish Nine New Fire Captain Positions
The reorganization recommended in this report also would establish nine new
"Fire Captain" positions to:'
. Command "Task Forces" established at Stations 45 and 48 (6
positions)
. Serve as "Incident Management Adjutants" (3 positions)
Six new "Fire Captain" positions would command the resources at Stations 45 and
48, re-organized as Task Force 45 and Task Force 48. Further, three (3) new Fire
Captain positions would serve as "Incident Management Adjutants" (IMA's) to the
Platoon Commanders.
According to Department calculations, an additional 1.8 FTE are needed to cover
for vacations, sick leave, etc. with off-duty personnel.
Task Force Resources
. Truck (Ladder/Platform) apparatus, staffed by a Captain, Driver
Operator, and Firefighter,
.
Squad, staffed by a Firefighter who will be responsible for driving
and maintaining the vehicle. The Captain will assign responsibility
for maintaining equipment carried on the Squad. These Squad
apparatus would be equipped as medium duty rescue vehicles.
.
Engine apparatus, commanded (under supervision of the Task Force
Commander) by a Lieutenant, with a Driver Operator, and
Firefighter as staff
.
Rescue apparatus, staffed by two (2) Paramedics or one (1)
Paramedic and one (1) EMT, reporting directly to the Task Force
Commander. If the staffing is altered to that recommended (one
Paramedic and one EMT), the other Paramedic will be assigned as
the Engine Company Firefighter).
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Findings and Recommendations
Task Force Command
. The chain of command for personnel assigned to the Truck
Company and Squad would be directly to the Captain. Engine
personnel would report to the Engine Company Lieutenant who
would in turn report to the Captain. This chain of command would
be in "force for emergency and non-emergency situations.
Task Force Operations
. On all responses calling for the Truck Company and/or the Squad,
the Task Force would be dispatched as a single unit (Truck, Engine,
Squad) with the Captain in command of all operations of the Task
Force.
. If a single Engine Company response is received, e.g., an EMS call,
the Engine Company (Lieutenant, Driver-Operator, Firefighter) will
take the response. Should the Task Force receive a Truck/Squad
response while the Task Force Engine is otherwise committed,
another Engine Company would be added to the dispatch in place of
the Task Force's regular Engine Company and function as part of
the Task Force.
. Prior to the arrival of a Chief Officer at incidents, the first arriving
Captain will function as the Incident Commander (relieving any
previously arrived Lieutenant). If those duties preclude the Captain
from appropriately supervising the Task Force, the Task Force
Engine Company Lieutenant will be assigned command of the Task
Force by the Task Force Commander (Captain). After arrival of a
Chief Officer, the Captain will assume duties as directed by the Chief
Officer.
The Task Force Commander's duties include but are not limited to:
.
Assumption of command at all incidents at which he/she is the
senior officer on scene or until a formal transfer of command is made
to another officer (and announced on the appropriate radio channel);
If two Task Forces are dispatched, the first arriving Task Force
Commander will assume the role of Incident Commander unless and
until command is "passed" to the second Task Force Commander.
Upon arrival of a Chief Officer, Incident Command will be passed to
that officer.
.
Determination of origin and cause of fires to which he/she responds
except in those situations where a senior officer or Clearwater Fire
Investigators are called to the scene for that purpose
.
Initiation and/or participation in the "unified command" of an incident
with other appropriate agencies, e.g., law enforcement agencies,
county emergency medical authorities, U.S. Coast Guard, etc.;
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Findings and Recommendations
. Assumption of duties at an incident as assigned by a Chief Officer or
a prior arriving Captain.
. Training of Task Force personnel to function as a single unified unit
performing Engine, Truck or Squad functions or separately as
Engine and Truck companies (Squad operations will always be in
conjunction with the Task Force). Training should also be scheduled
(in coordination with the Platoon Commander) and accomplished
with other Engine Companies to assume the role of a Task Force
Engine.
.
Mentoring of newly appointed/assigned Lieutenants in Task Force
operations and other duties of a Task Force Lieutenants and in the
case of newly appointed Lieutenants, company officer functions in
general.
.
Evaluation of the performance of Lieutenants and other personnel
assigned under his/her command using Department standard
operating procedures for general guidance.
.
Review of and comment on, performance evaluation reports
completed by his/her immediate subordinate for personnel under the
subordinate's command as per Department standard operating
procedures
.
Maintenance of a journal or other record (as directed by the Fire
Chief) of those actions in which the Task Force becomes involved.
.
Recommendation, to appropriate Assistant Chief, for post-incident
stress management intervention for members of the Task Force, as
he/she determines advisable.
.
Specific prioritization / scheduling (in coordination with the Platoon
Commander) of non-emergency activities for members of the Task
Force.
.
Monitoring of activities of personnel under his/her command
.
Regulation of, under general guidance of Department standards
operating procedures, of personnel under his/her command
.
Deployment of Department personnel, equipment and apparatus at
the scene of emergencies prior to the arrival of a senior officer
.
Coordination of activities and procedures with other Task Force and
Company officers, including dissemination to relieving officers of
significant information about activities in the Task Force during
preceding period of operations
.
Ensure that all reports required of personnel under his/her command
are submitted in a timely and accurate fashion
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Findings and Recommendations
. Review and forwarding to the appropriate Platoon Commander,
under general guidance of Department standard operating
procedures, of requests for time swaps, vacation, floating holidays,
sick leave, etc.
. Initiation of investigation of alleged or suspected personnel
misconduct of personnel under his command and/or within his/her
area of responsibility. After review of the situation, recommendation,
to the appropriate Platoon Commander, of appropriate action under
general guidance of Department standard operating procedures
. Inspection of all facilities and personnel under his/her command, on
a frequent basis, to assure Department standard operating
procedures are being followed
. Evaluation of special training needs of personnel under his/her
command and initiates or recommends, to the appropriate Platoon
Commander, that training
. Monitoring overall appearance and condition of personnel, apparatus
and equipment to ensure compliance with Department standard
operating procedures
. Instruction of subordinate personnel in:
- Fire tactics and strategy
Firefighter safety and health
- Department performance standards
- Supervisory techniques
- Problem solving techniques
- Incident command procedures
. Initiation and review of pre-fire-incident planning activity
. Review of payroll data of his command for accuracy
. Dissemination of appropriate information to subordinates
. Assistance to the appropriate Chief Officer in development of
operating and capital budget for his command
. Actions to ensure achievement of Department goals and objectives
and/or recommendation of amendment( s) to those goals and
objectives
. Recommending changes to Department policies and procedures.
. Other duties as directed by the Fire Chief or his representative.
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Findings and Recommendations
The !:Ioals of this recommendation are:
. To provide flexibility in use of resources. The Task Force could be
utilized as a heavily staffed Truck, Engine, or Squad Company or as
a dual function unit for Truck and Engine work, Engine and Squad
work, etc.
. To provide Incident Commanders with an officer to use in an ICS
Section, Branch, Division, or Group position without crippling his/her
company. For instance, if the Captain were to be used as Division
Commander, the Lieutenant would be assigned command of the
Task Force, which again, could be used as either a heavily staffed
Truck or Engine or Squad company (in this case, the Task Force
could no longer be used for Truck and Engine work at the same time
because of staffing and command issues).
. To provide a more qualified officer to "act" in the Platoon
Commander role for short periods (12 hours or less) or when no
Assistant Chief is available to fill that position. The Captains would
become more qualified through training focused on second level
supervision and experience in the role of "Acting AC".
. To provide more flexibility in assignment of officers. A Captain, if
holder of the necessary certifications and skills, could transfer to one
of the recommended "Special Assignment Captain" positions
(Department Safety Officer, Training Officer, Fire Prevention Area
Command) for an increase in base pay to off-set the loss of overtime
earnings. Conversely, a Special Assignment Captain, again holding
the necessary certifications and skills could move to a line position,
making up for the loss of "special assignment bonus" with overtime
earnings. This should result in a more rounded officer eligible for
promotion to Chief Officer rank, and bring in "new blood" to the
various positions.
Incident ManaQement Adiutant Assiqnments
. These positions would be assigned to each Platoon Commander
(Assistant Chief) as his/her Adjutant for both incident management
and administrative duties.
Duties of the Incident ManaQement Adiutant include but not limited to:
.
Prepare a staffing plan for following shift for the Platoon
Commander's review and approval,
.
Serve as Assistant Chiefs driver on emergency response allowing
the Chief Officer to plan for incident control prior to arrival.
.
Serve as incident management staff (e.g., Resource Status,
Situation Status, Documentation)
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Findings and Recommendations
. Monitor radios for incoming messages and relay Incident
Commander's directions to other officers
. Serve as additional fire fighter for unusual rescue or fire fighting
situations
The Qoals of this recommendation are:
. To relieve the Platoon Commanders of certain details at incidents,
e.g., routine communications, resource and situation status and
documentation, to better focus on management of the incident scene
. To relieve the Platoon Commander of certain administrative details,
e.g., company staffing vacancies, company officer report reviews,
minor logistics issues, to better focus on platoon administration
needs
. To provide additional personnel with exposure to the responsibilities
and authorities of management
. To provide a more qualified officer to "act" in the Platoon
Commander role (AC in this recommendation). The Captains would
become more qualified through training focused on second level
supervision and experience in the role of "Acting AC".
. To provide more flexibility in the assignment of officers. A Fire
Captain would be eligible to serve as either a Task Force
Commander or an Incident Management Adjutant. If holder of the
necessary certifications and skills, a Captain could transfer to one of
the recommended "Special Assignment Captain" positions
(Department Safety Officer, Training Officer, Fire Prevention Area
Command) for an increase in base pay to off-set the loss of overtime
earnings. Conversely, a Special Assignment Captain, again holding
the necessary certifications and skills could move to a line position,
making up for the loss of "special assignment bonus" with overtime
earnings. This should result in a more rounded officer eligible for
promotion to Chief Officer rank and bring in "new blood" to the
various positions.
4.1.2.5 Establish Four New "Special Assiqnment Captain" Positions
This report recommends the establishment of four new "Special Assignment
Captain" positions:
. Life Safety and Fire Investigation Area Commander (two positions
for two "Areas")
. Safety Officer
. Training Officer
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Findings and Recommendations
The purpose of this recommendation is to provide some flexibility for the Captain'~
rank. These positions will require additional training and perhaps certifications which the
Fire Captains could earn on their own time to become eligible for the bonus positions.
4.1.2.6 Eliminate Two Investiqator Positions
The report recommends the elimination of two Investigator positions in favor of the
two Special Duty Captain positions assigned to Life Safety and Fire Investigation.
All the duties of these positions would be absorbed, as well supervisory duties of
their respective "Life Safety and Fire Investigation Areas". These positions would require
additional training but given the large increase in compensation, there should be healthy
competition for these positions in the future.
4.1.2.7 Move the Emerqency Manaqement Function to the Assistant City
Manaaer's Office
This report recommends that the Emergency Management function be assigned to
the Assistant City Manager's Office. The Assistant City Managers Office is in stronger
position to "encourage" the "enthusiastic participation" of all the City departments. It is
recommended that the Assistant Chiefs position currently responsible for this function
be deleted (see 4.1.2.2.
4.1.2.8 Reassian Administrative Support Positions to the Fire Chief
The Administrative Support positions should be placed immediately under the Fire
Chief.
. Administrative Analyst (1 )
. Administrative Assistants (3)
It appears that the Administrative Analyst serves in the role of assistant to the Fire
Chief. Further, the Administrative Analyst determines the work functions and
assignments of the Administrative Assistants.
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Findings and Recommendations
4.1.2.9 Delete the Traininq Coordinator Position
The report recommends the deletion of the position of Training Coordinator and
the reassignment of the duties to the recommended Training Officer. See 4.1.2.6.
4.1.2.10 Assian Newly Appointed Lieutenants to Task Forces
The report recommends the assignment of all newly appointed Lieutenants to
Task Force Engine Companies for not less than 60 working shifts. Assigning newly
appointed Lieutenants to Task Forces would provide these new officers with the
mentoring of the Task Force Captains. This may require negotiations with the IAFF
Local.
4.1.2.11 Require both Fire and EMS Experience for Chief Officers
Future hires for Chief Officer positions should have credible experience in both fire
protection and emergency medical services.
In any Fire Department, it is critical that Chief Officers have credibility with the rank
and file. In a Department so involved with emergency service, with significant fire
protection challenges and so few Chief Officers, those officers must have credible
experience in both fire protection and emergency service.
It is sometimes argued that because such a heavy majority of responses are for
emergency medical incidents, fire departments should concentrate on that aspect of
their mission. We believe that any reduction in fire protection, be it code enforcement or
fire fighting will result in a reduction in the level of fire safety provided the citizens.
EMS has high frequency impact on a limited - number of citizens in terms of
medical incidents. Fire protection has much less frequent impact but often impacts a
great number of citizens through the loss of places of employment, places of education,
multi-housing, places of worship, and loss of tax base.
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Findings and Recommendations
4.2 Staffinq
4.2.1 Findinqs
4.2.1.1 Adeauate Overall Staffinq
The current overall staffing for the Clearwater Fire and Rescue Department is
adequate, given the excellent mutual-aid program in effect and the forthcoming
additional Engine Company.
The current staffing on engine and truck companies is in keeping with the majority
of fire departments in the country and in Florida.
There is no federal standard requiring a specific number of personnel to be
assigned to a fire company or firefighting apparatus.
There is a federal OSHA requirement that requires firefighters functioning in
hazardous or potentially hazardous atmospheres to operate in teams of two or more and
that not less than 2 firefighters be in place outside the hazardous area to initiate rescue
of the "inside team" is trapped or incapacitated.
This does not equate to a requirement for having 4 firefighters on fire fighting
apparatus because:
. the OSHA standard states that "the assignment oL.the incident
commander,...or operators of fire apparatus, shall not be permitted
to function as the standby crew, if by abandoning their ...task(s) ...to
perform rescue, they clearly jeopardize the safety/health of any fire
fighter
. The above would arguably rule out the use of any Incident
Commander, or pump or ladder operator operating their equipment
at an incident where no other company was on scene. Therefore, it
would require the attendance of another company in any case to
meet the OSHA Standard.
There is a document (NFPA 1710) published by the National Fire Protection
Association (a "not-for-profit" private sector organization) which establishes certain
staffing and response time recommendations. While titled a "standard" it is not in fact a
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Findings and Recommendations
legal requirement unless and until formally adopted by an agency (federal, state, or
local). An official NFPA publication affirms that as of this date (February, 2004), no
public agency in the nation has adopted NFPA 1710, Given that for most of the fire
agencies in the nation, compliance with NFPA 1710 would increase personnel costs by
33% or more, it seems unlikely that there will be significant adoption in the near future.
There is current congressional legislation to provide short term funding (four
years) for additional fire agency staffing. NFPA reports that such funding varies from 10
to 70 percent over 4 years and would require agencies to retain the services of the
additional firefighters for not less than 1 year following termination of the federal funding.
It must be made clear to all department emergency responders that, excepting
those cases of incipient fires or when the immediate action of the first arriving personnel
can save life or serious injury, entry into hazardous environments shall not be made until
five (5) or more personnel are on the scene.
NOTE: This assumes that the pump or ladder operator can, for a short
period of time, assume both the role of operator and Incident
Commander. It should also be noted that with the recommended
Incident Management Adjutant, there would be 5 firefighters on the
scene with the arrival of the Platoon Commander.
4.2.1.2 Current Minimum Staffing
Current minimum staffing is:
. All Engine Companies are staffed at three (Lieutenant, Driver-
Operator, Firefighter) with the exception of Engine 44, which is
staffed at four (an additional firefighter). Two Engine Companies
have a Lead Paramedic/Firefighter assigned.
. Rescues are generally staffed with a Paramedic and Lead
Paramedic. However if there is a shortage of Paramedics, an EMT
may be used in place of one Paramedic.
. The Aerial Truck Companies are staffed at three (Lieutenant, Driver-
Operator, Firefighter)
. The Squad is staffed with a Lieutenant and Firefighter.
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Findings and Recommendations
At certain times the ALS Engines have an additional Firefighter/Paramedic (raising,
the staffing to four) because the union agreement requires that all ALS units have a
"Lead Paramedic. Two paramedics are not required by either the county or union
contract.
4.2.2 Recommendations
4.2.2.1 Reorqanize the Fire and Rescue Department
Consider a reorganization of emergency response resources as indicated in this
report. The recommended organization chart identifies staffing levels and reporting
relationships. In the following few pages, the reader will see three charts that indicate
staffing levels and dollar figures for the current organization (Exhibit 4-4), for Option A
(Exhibit 4-5), and for Option B (Exhibit 4-6). Option A, the recommended option, results
in a slight dollar savings ($32,985) over the current budgeted amounts for personnel
services, with a reduction of three (3) full-time equivalent (FTE) positions. Option B
would result in a slight increase in dollars ($60,549) with the same level of FTE
positions.
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EXHIBIT 4-4
CURRENT STAFFING LEVELS
Fire Chief 1 1 $101,600.00 $127,000.00
Deputy Chief 2 2 $92,200.00 $184,400.00 $230,500.00
AC 4 4 $83,600.00 $334,400.00 $418,000.00
District Chief 6 6 $65,000.00 $390,000.00 $487,500.00
Fire Marshal 1 1 $83,600.00 $83,600.00 $104,500.00
Fire lieutenant 30 30 $55,150.00 $1,654,500.00 $2,068,125.00
Rescue lieutenant 3 3 $63,423.00 $190,269.00 $237,836.25
Investigator 2 2 $55,150.00 $110,300.00 $137,875.00
LS Inspector 6 6 $43,554.00 $261,324.00 $326,655.00
Public Education Specialist 2 2 $41,514.00 $83,028.00 $103,785.00
Firefighters 33 42 $47,607.00 $1,999,494.00 $2,499,367.50
Driver Operators 27 30 $47,607.00 $1,428,210.00 $1,785,262.50
Paramedics 21 27 $52,141.00 $1,407,807.00 $1,759,758.75
Ld. Paramedics 27 24 $54,408.00 $1,305,792.00 $1,632,240.00
Training Coordinator 1 1 $54,200.00 $54,200.00 $67,750.00
Fire Support Manager 1 1 $68,800.00 $68,800.00 $82,560.00
Administrative Analyst 1 1 $49,300.00 $49,300.00 $59,160.00
Administrative Support Manag 1 1 $68,800.00 $68,800.00 $82,560.00
Storekeeper 1 1 $37,536.00 $37,536.00 $45,043.20
Personnel/Payroll Clerk 1 1 $37,536.00 $37,536.00 $45,043.20
Acting Technician 1 1 $35,904.00 $35,904.00 $43,084.80
Staff Assistants 3 3 $32,436.00 $97,308.00 $116,769.60
TOTAL 175 190 $9,984,108.00 $12,460,375.80
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EXHIBIT 4-5
OPTION A STAFFING LEVELS
~"~~<"+no;~
ii iuit; . ...:.....:.:.:.:'
p';)j ht:.'" it It . > P
Fire Chief 1 1 $101,600.00 $101,600.00 $127,000.00
Deputy Chief 3 3 $92,200.00 $276,600.00 $345,750.00
AC 3 3 $83,600.00 $250,800.00 $313,500.00
Special Assignment AC 1 1 $87,780.00 $87,780.00 $109,725.00
District Chief 0 0 $65,000.00 $0.00 $0.00
Fire Marshal 0 0 $83,600.00 $0.00 $0.00
Fire Captain 9 9 $63,423.00 $570,807.00 $713,508.75
Special Assignment Captain 4 4 $65,000.00 $260,000.00 $325,000.00
Fire Lieutenant 21 21 $55,150.00 $1,158,150.00 $1,447,687.50
Rescue Lieutenant 3 4 $63,423.00 $228,322.80 $285,403.50
Investigator 0 0 $63,423.00 $0.00 $0.00
LS Inspector 6 6 $43,554.00 $261,324.00 $326,655.00
Public Education Specialist 2 2 $41,514.00 $83,028.00 $103,785.00
Firefighters 33 42 $47,607.00 $1,999,494.00 $2,499,367.50
Driver Operators 27 32 $47,607.00 $1,542,466.80 $1,928,083.50
Paramedics 42 50 $54,408.00 $2,742,163.20 $3,427,704.00
Ld. Paramedics 0 0 $54,408.00 $0.00 $0.00
Training Coordinator 0 0 $54,200.00 $0.00 $0.00
Fire Support Manager 1 1 $68,800.00 $68,800.00 $82,560.00
Administrative Analyst 1 1 $49,300.00 $49,300.00 $59,160.00
Administrative Support Manage 1 1 $68,800.00 $68,800.00 $82,560.00
Storekeeper 1 1 $37,536.00 $37,536.00 $45,043.20
Personnel/Payroll Clerk 1 1 $37,536.00 $37,536.00 $45,043.20
Acting Technician 1 1 $35,904.00 $35,904.00 $43,084.80
Staff Assistants 3 3 $32,436.00 $97,308.00 $116,769.60
TOTAL 164 187 $9,957,719.80 $12,427,390.55
$ DIFFERENCE FROM CURRENT -$26,388.20 -$32,985.25
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I Findings and Recommendations
I EXHIBIT 4-6
OPTION B STAFFING LEVELS
I Fire Chief 1 1 $101,600.00 $101,600.00 $127,000.00
I Deputy Chief 3 3 $92,200.00 $276,600.00 $345,750.00
AC 6 6 $83,600.00 $501,600.00 $627,000.00
Special Assignment AC 1 1 $87,780.00 $87,780.00 $109,725.00
-, District Chief 0 0 $65,000.00 $0.00 $0.00
I Fire Marshal 0 0 $83,600.00 $0.00 $0.00
Fire Captain 0 0 $63,423.00 $0.00 $0.00
I Special Assignment Lieutenant 4 4 $63,423.00 $253,692.00 $317,115.00
Fire Lieutenant 33 30 $55,150.00 $1,654,500.00 $2,068,125.00
Rescue Lieutenant 3 3 $63,423.00 $190,269.00 $237,836.25
I Investigator 0 0 $55,150.00 $0.00 $0.00
LS Inspector 6 6 $43,554.00 $261,324.00 $326,655.00
Public Education Specialist 2 2 $41,514.00 $83,028.00 $103,785.00
I Firefighters 30 42 $47,607.00 $1,999,494.00 $2,499,367.50
Driver Operators 27 32 $47,607.00 $1,542,466.80 $1,928,083.50
Paramedics 42 50 $53,274.00 $2,685,009.60 $3,356,262.00
I Ld. Paramedics 0 0 $54,408.00 $0.00 $0.00
Training Coordinator 0 0 $54,200.00 $0.00 $0.00
Fire Support Manager 1 1 $68,800.00 $68,800.00 $82,560.00
I Administrative Analyst 1 1 $49,300.00 $49,300.00 $59,160.00
Administrative Support Manag 1 1 $68,800.00 $68,800.00 $82,560.00
Storekeeper 1 1 $37,536.00 $37,536.00 $45,043.20
I Personnel/Payroll Clerk 1 1 $37,536.00 $37,536.00 $45,043.20
Acting Technician 1 1 $35,904.00 $35,904.00 $43,084.80
Staff Assistants 3 3 $32,436.00 $97,308.00 $116,769.60
I TOTAL 167 190 $10,032,547.40 $12,520,925.05
$ DIFFERENCE FROM CURRENT $48,439.40 $60,549.25
I 4.2.2.2 Staff Enaine Companies with Three Personnel
I It is recommended that the department staff all Engine Companies with three
personnel, including a Lieutenant, Driver-Operator, and Firefighter (or Firefighter-Medic)
t It is desirable to standardize Department operations to the extent possible.
Staffing all Engine Companies with 3 (rather than some at 4) would facilitate Engine
I Company standard operating procedures.
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Findings and Recommendations
4.2.2.3 Deploy a Rescue Unit at all Stations
Deploying a Rescue at all stations would relieve some response pressure from
Engine Companies. This action would provide additional staffing for single Engine
Companies at incidents (assuming the Rescue is available to respond), thus allowing
immediate interior attack (there would be five personnel on scene) and providing
additional EMS capability" .
4.2.2.4 Establish the Task Force Concept at Stations 45 and 48
It is recommended that the department establish the Task Force concept at
Stations 45 and 48. Report section 4.1.2.4 provides background data for this
recommendation.
4.2.2.5 Delete the Lead Paramedic Position: Increase Paramedic Positions
This report recommends the deletion of the Lead Paramedic position.
Concurrently, the department would increase the number of Paramedics from 27 to 50.
Under the recommended staffing plan, Rescues would be staffed with a single
Paramedic and an EMT. It is recommended that the EMT function as the driver with the
Paramedic being in charge of the unit. Further, a Paramedic/Firefighter would be placed
on each Engine Company.
This recommendation would accomplish at least 2 desirable goals:
. It would double the number of ALS response units without
significantly increasing personnel costs
. It would encourage personnel to obtain Paramedic status as only
50% of the on-duty Firefighter-Paramedics would be assigned to
Rescues (this concept has been used successfully in the Phoenix
Fire Department)
. Having the EMT drive would free the Paramedic to be with the
patient in the rear of the ambulance with the patient.
Having the EMT drive would free the Paramedic to be with the patient in the rear
of the ambulance.
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Findings and Recommendations
This would require 14 Paramedics per shift or, using the 3.6. staffing multiplier, 50
Paramedics.
4.2.2.6 Reduce the Number of Lieutenant Positions
With the addition of the 2 Captains on the Task Forces, there will be seven (7)
Lieutenant positions to staff the company officer positions on the Engine Companies.
With the three platoon system, 21 positions are needed (without regard to paid
vacations, etc. which would be filled with off-duty Lieutenants working overtime or lower
ranks moved up to that position on an acting basis. The "eligible pool" for the
recommended Captain positions should include, but not be limited to, all Lieutenants
with 2 or more years in the Lieutenants position.
4.3 Procedures, Practices and Policies
4.3.1 Findinqs
4.3.1.1 Well-Desiqned Pre-Incident Planninq Proqram
The pre-incident planning program appears well designed. The inspection of
premises are conducted to generate information critical to effective, efficient and safe
incident control activities.
4.3.1.2 Accreditation of the Clearwater Fire Department
The Department has completed the "Fire and Emergency Services Self
Assessment & Accreditation Program"
"Accreditation" benefits to a fire department tvpicallv include:
.
Can promote a level of excellence and pride within the fire
department.
.
Can assist the fire department cope with change.
.
Can encourage a continuous self-assessment which in turn can
allow for administrative and management improvements.
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Findings and Recommendations
. Provides the vehicle for a detailed review of the services provided by
the fire department to the community.
. Defines, to some extent, strengths and weaknesses of the fire
department.
. Defines, to some extent, direction for organizational improvement.
. Provides data for the development of a fire department master plan.
. Assists in defintllg and improved understanding of organizational
philosophies.
. Provides fire department recognition within a national network.
"Accreditation" benefits to the community can include:
. Can create an image of confidence and credibility in the eyes of the
public toward the fire department.
. Promotes civic pride in the fire department.
"Accreditation" concerns include:
. "Accreditation" often develops an "in-house" fire department
perspective instead of the preferred broader approach that
incorporates the overall community fire and emergency services
"systems." Fire service planning that is driven solely from within the
fire department may not be reflective of the scope and level of
services desired and afforded by the elected body and public at
large.
. The fire agency being "accredited" may assume that the majority of
service improvements addressed within the program must be
provided through the fire department. This often is not the case. An
example in the instance of fire protection would be the attempt to
improve fire protection for large structures (including all high-rise
structures) solely through increased fire department resources. A
more cost and service effective solution would be to encourage the
installation of automatic fire sprinklers through such means as low or
no interest loans or tax incentives.
4.3.1.3 Dolphin Cove
The USFA Technical Report Review of the "Multiple Fatality High-Rise
Condominium Fire of June 28, 2002" made several points regarding Department
operations at that incident, including:
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Findings and Recommendations
Resource Deployment
The department's practice of deploying a reduced assignment of one engine and
one squad for automatic fire alarm activations is reflective of other communities that
have experienced a high frequency of false alarms in multi-story buildings. The
department immediately upgraded the response to a "full assignment" after receiving
numerous telephone calls from the occupants stating there was smoke in the building.
The good practice of requesting a second alarm by company officers early in the
operation allowed for the more timely deployment of much needed personnel and
equipment than would have been the case had officers delayed the request until they
had more specific information. A subsequent request for additional resources by the
incident commander, including a third alarm, demonstrated the department's
appreciation of the need for sufficient resources to carryout the operations of a high-rise
fire.
Command
There appeared to be an appropriate transfer of command from first arriving
company officer to chief officers upon their arrival. However, commanding officers on the
scene indicated significant challenges to their effectiveness.
The primary challenges to effective incident command at this incident was
primarily due to a high volume of radio traffic and a lack of resource management due to
in large part to insufficient use of tactical worksheets. The lack of documentation of
company assignments contributed to a level of confusion and accountability during the
early stages of the incident.
Command Support
Lack of staff support may have caused some level of ineffective strategic decision
making and personnel status awareness.
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Findings and Recommendations
The Clearwater Fire and Rescue Department did not appear to practice inciden~
command scene organization, leaving the Incident Commander to monitor the radio,
track units on the scene, determine the situation status, document the significant aspects
of the fire and plan the fire attack.
Communications
The heavy radio "traffic hampered the incident commander in effectively
communicating with the County Communications Center and personnel under their
command. A lack of radio discipline by company officers, apparatus operators and other
firefighters equipped with portable radios greatly reduced the ability of the Incident
Commander to monitor pertinent radio traffic and negatively impacted strategy and
tactical decision making. Also, critical radio transmissions from the Incident Commander
to the County Communications Center went unheard, further adding to overall confusion
of requests for and deployment of resources.
Radio transmissions by company officers and individual firefighters were often not
received by the incident commander, causing confusion and delayed directives.
In addition to the three alarms assigned to the incident, the incident commander
requested two additional truck companies from the county communications center.
However, dispatchers never acknowledged the request nor were these units dispatched
to scene.
The problems relating to radio communications indicate a lack of sufficient radio
system capability, (available frequencies, number and training of fire dispatchers, etc.) a
lack of department communications training, and/or a lack of fireground discipline.
With a modern radio system, adequate training of dispatch and fire service
personnel, and enforced fireground discipline, the communications problems that took
place at the Dolphin Cove Condominium fire would not occur.
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Findings and Recommendations
The Fire Chief has assured the study team on more than one occasion that th~,
County Dispatch Center and communications system is "world class". The problems
exhibited at the Dolphin Cove Condominium fire indicate either a breakdown in
fireground discipline, a department training failure or a communications systems failure.
StrateQV and Tactics
Initial fire suppression operations were delayed upon arrival by first due
companies partly due to their deviation from department policy and procedures by
utilizing elevators to investigate the reported fire, in spite of their being notified by the
County Communications Center reporting "smoke in a building." This breakdown in
fireground discipline, coupled with a closed standpipe isolation valve and a broken fire
hydrant, and the exposure of occupants in the vicinity of the fire all contributed to a delay
in firefighting operations, all of which lead to flashover in the apartment of origin.
Initial fire suppression operations began by truck company personnel (Truck 45)
approximately 25-30 minutes after the arrival of the first arriving company.
Extinguishment was completed when Truck 45's crew was able to enter an adjacent
apartment unit on the fifth floor via their tower ladder. Interior operations were conducted
from the unburned side of the fire through the use of hand lines extended from the tower
ladder's elevated waterway.
FirefiQhter Safety
First arriving firefighting crews used the elevators to gain access to the fire floor
resulting in some firefighters being temporarily trapped. Radio discipline broke down so
the plight of downed, injured and trapped firefighters was not heard for some time. In
general, Department personnel ignored generally accepted rules for firefighter safety
and it nearly cost some of them their lives.
NOTE: The USFA report states that the Clearwater Fire Department's
SaGs dictate that elevators can be used if fires are above the fifth floor.
This is a questionable practice and should bere-evaluated immediately.
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Findings and Recommendations
4.3.1.4 Apparatus Replacement Proqram
Budget documents indicate that there is no consistently funded budget item for
apparatus replacement, but in recent years apparatus replacement has obviously been
very good. The apparatus fleet is in generally good condition, with the average age of
engine apparatus being less than 4 years, and an average mileage of less than 23,000
miles (only 6 apparatus reported mileage). Rescue apparatus age was also less than 4
years with an average mileage of a little over 40,000 miles. Aerial apparatus age was
less than 3 years and mileage less than 12,000 miles.
According to interviews, the current modern, reliable Clearwater Fire and Rescue
Department fleet replaced an aging, unreliable fleet.
4.3.1.6 Hiqh Ratio of Mutual Aid Received
Currently, the City of Clearwater is receiving mutual aid at a rate in excess of 2:1
from neighboring cities as opposed to aid provided to neighboring cities.
With the current data available, it is difficult to determine why Clearwater receives
mutual aid at such a disproportionate ratio.
4.3.2 Recommendations
4.3.2.1 Retain and Strenqthen the Pre-Incident Planninq Proqram.
A well designed pre-incident planning program is important to both effective
incident control and firefighter safety. The Department's plan to upgrade the availability
of this system via digital transmission to fire apparatus is a worthy program, assuming
the apparatus monitor will be large enough to provide the detail needed.
4.3.2.2 Initiate a Comprehensive Community Fire Protection Master Plan
Utilizing data collected for the "Fire and Emergency Services Self Assessment &
Accreditation Program", the department should initiate a comprehensive community fire
protection master plan.
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Findings and Recommendations
As with the Insurance Services Office's Fire Suppression Rating Schedule, the
"Accreditation" program can be most effective to the community when its process is
linked with a fire defense and emergency services comprehensive plan. Ideally, the
accreditation process should be an integral part of the planning process.
When utilized in its entirety, the "Community Fire Protection Master Planning
Process" encourages a cOmmunity-based participatory approach to the design of a fire
defense and emergency services system that is reflective of the community's accepted
level and kind of service.
Ideally, the fire department, in conjunction with the elected body, may benefit the
most if they view accreditation as an integral component to a planning process, whereby
the community's fire defense and emergency services system is measured with regards
to its overall performance.
The United States Fire Administration has excellent resource material for carrying
out comprehensive master planning.
4.3.2.3 Make Selected Policv and Practices Chanqes
If any of the following have not been accomplished, action should be initiated
immediately:
.
Re-consider the department policy of responding with a single
Engine Company and Squad on all automatic fire alarms.
.
The policy of diminished response to automatic fire alarms,
widespread in departments across the nation, should be reexamined
by the Clearwater Fire and Rescue Department. While reasonable
for single family residences, it is unwise to continue this policy for
non-sprinklered structures, such as high-rises, where response time
to the actual fire scene may be delayed by several minutes due to
access difficulties. It is well within the realm of possibility that a well-
established fire might not be apparent until firefighters arrived at the
door of the fire unit on an upper floor. The delay in response of
supporting resources could mean the difference between holding the
fire to compartment of origin and a fire spreading to the hallways and
adjoining units.
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Findings and Recommendations
. A recommended amendment to the reduced automatic alarm
assignment would be to make larger structures (including high-rise
buildings) an exception to the diminished response assignment for
automatic fire alarms. ..
. A partial solution to the false alarm problem would be a non-
emergency dispatch for all but the first-due company.
. Response to large structures (especially high-rise buildings) is made
more difficult by the limited access to the higher floors of the
building. It coulEl be several minutes until a fire is discovered on an
upper floor. That delay in fire attack is then magnified by the
delayed response of supporting companies.
. Provide stronger support for command officers at all significant
incidents (also see 4.1.2.4.)
. It is not feasible for a command officer at a complex incident to deal
with all the requirements of command without assistance. That
assistance should arrive on the scene with the command officer.
Included in the duties of such support are: status of personnel and
equipment at the scene (e.g., where working, how long committed to
that task, fuel state of pumping apparatus, etc.); situation status
(e.g., location of fire in structure, type of construction, ventilation
channels, progress toward controll extinguishment, location of
possible victims, etc.); documentation (e.g., orders issued, time of
issue, requests for additional resources, time of their arrival, etc.;)
radio monitoring for incoming messages and relay Incident
Commander's directions to other officers. (see 4.1.2.4.)
. Using company personnel for command support typically diminishes
the effectiveness of these companies.
. There are now computer assisted tactical worksheets available to
assist in both resource status and documentation of incident
activities
.
Initiate monitoring of radio discipline by senior staff and take
necessary action to insure proper use of department radios.
.
Should some members not respond to mentoring/training on the
subject, strong discipline should be considered. Poor radio
discipline could easily lead to a life or death situation, as evidenced
in the subject fire.
.
In conjunction with the County Dispatch Center examine their
communication practices and procedures to determine needs related
to additional radio system hardware, capability, additional radio
frequencies, additional dispatch personnel training or additional fire
dispatchers, or examination of department personnel fireground
discipline.
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Findings and Recommendations
. The causes and "fixes" for the communication problems experienced
at the Dolphin Cove Condominium fire should be documented and
exercised to preclude any similar situation.
. If the problems include issues with the communications system,
those issues need to be addressed with the managers of that
system. It is not enough to have the latest and greatest hardware
and software. There must be sufficient personnel, adequately trained
to support field operations
. Initiate stronger. emphasis on strategy and tactics for unusual
incidents (e.g. significant high-rise fires, large aircraft down in urban
area, etc.) through training and structured evaluation. (also see
4.4.2. )
. There is no justification for using elevators in any building until fire
personnel have been able to ascertain their safety. The elevator
event that occurred at the Dolphin Cove fire could happen on any
floor of any building.
. Using case studies, evaluate emergency response personnel's
awareness of firefighter safety issues and means to avoid those
situations.
. The National Fire Protection Association produces an annual report
on firefighter injuries and fatalities. This information should prove
very useful in creating training scenarios that could be threatening to
Clearwater Fire and Rescue Department personnel.
. Strict adherence by Department personnel to high-rise standard
operating guidelines should instilled in all personnel, including the
safe use of elevators.
. If in fact the Clearwater fire and rescue standard operating
guidelines support the use of elevators when investigating fires
reported above the 5th floor, this should be rewritten to indicate that
no elevator should be used until fire personnel have determined that
it is safe to do so.
4.3.2.4 Establish a Fleet Replacement Fund
The City should consider establishing a fleet replacement fund to ensure that the
Clearwater Fire and Rescue Department is equipped with modern, reliable apparatus.
The Department should consider redeployment of apparatus to balance mileage on
apparatus where appropriate. Consideration should be given to procurement of
additional reserve apparatus both for interim replacement during lengthy maintenance
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Findings and Recommendations
and for use with recalled personnel during periods of unusual service demand. A known,
replacement system allows for better planning of apparatus replacement, overhauls, and
maintenance.
4.3.2.5 Evaluate Mutual Aid Imbalance
The Clearwater Fire and Rescue Department should initiate a study to determine
the cause for Clearwater,s apparent disproportionate use of the County mutual aid
program.
The study should be initiated for a specific period of time, but not less than one
year. The planning officer should determine the best means of determining the cause
for every dispatch of a neighboring fire unit into Clearwater. Some possible causes
include:
. All Clearwater Fire and Rescue Department units reasonably
.proximate to the incident are unavailable to dispatch. The reason for
their unavailability should also be determined, e.g. committed to an
incident, assigned to a training exercise, apparatus failure, etc.
. A neighboring unit is located such that it is closer to a reported EMS
incident than the closest appropriate Clearwater Fire and Rescue
Department unit.
. A neighboring unit is closer than one of the Clearwater Fire and
Rescue Department units that would make up part of a structure fire
response
. A neighboring unit is required due to a greater alarm incident within
Clearwater.
The purpose of this study is to deflect criticism from the Clearwater Fire and
Rescue Department union or neighboring agencies that the Clearwater Fire and Rescue
Department lacks sufficient resources to meet the demand for its services, or to
determine that in fact the Clearwater Fire and Rescue Department does lack sufficient
resources to meet the demand for its services.
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Findings and Recommendations
If the study does determine that the demand for services are more than th~
Clearwater Fire and Rescue Department can handle with current resources, there are
several means to meet that need, including, but not limited to:
. Fund additional Clearwater Fire and Rescue Department resources
. Contract with adjoining agencies to provide some portion of the
funding for neighboring fire services.
. Contract with a private EMS provider to relieve Clearwater Fire and
Rescue Department units of some EMS responses during high
demand periods.
4.4 Training and Human Resource Development
4.4.1 Findinqs
4.4.1.1 New Recruit Traininq Program
During 2003, a labor/management subcommittee was established to focus on the
development of an orientation program for new recruits. An outcome of that effort was
the creation of a six week program that was initiated on February 9, 2004, for 12 people.
The newly implemented recruit training program appears to be a significant improvement
in preparing personnel for their Clearwater Fire Department careers. This program
replaces a previous program of one week's duration.
To test for a firefighter position in the State of Florida, recruits must obtain a
firefighter certification. Eighteen (18) days are devoted to fire fighting and physical
rescue, 5 days to EMS (recruits must also have an EMT certification prior to hiring) and
6 days to administrative material.
4.4.1.2 Need for Fireground Discipline
A review of the department's Career Development Manual, the department's
Lieutenant's Manual, and the personnel performance at the Dolphin Cove Condominium
fire, indicates that there may be less than adequate focus on the part of Department
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management and personnel on fireground operations, personnel safety, and incident
management.
The Department has listed several training programs as verification of proficiency.
The component that appears to be missing is an evaluation of the incident management
and high-rise firefighting knowledge, skills and fireground discipline of personnel. The
reported shortcomings of the Clearwater Fire and Rescue Department at that incident
indicate a lack of fireground discipline as well as knowledge and skill on the part of
Clearwater Fire and Rescue Department personnel.
It should not require extensive training for personnel to understand the hazards of
using elevators during fire conditions. The disregard of department safety policy at that
incident may be an indicator of deep-seated disregard for management direction on the
part of some personnel. This should be of great concern on the part of City and
Department management as well as line personnel. In this case, fatal firefighter injuries
could easily have been the result.
4.4.1.3 Internal Observation of Proficiency Exercises
The department advises that District and Assistant Chiefs witness proficiency
exercises. A recommendation is provided in section 4.4.2.3 regarding the type and
level of personnel who should be observing exercises.
4.4.1.4 Post-Incident Reviews
The department reports that post-incident reviews of incidents are regularly held.
Post-incident reviews are used to determine equipment and personnel performance.
4.4.1.5 Officer Training
Based on reading of materials provided by the department and reviews of the
Dolphin Cove Condominium fire, it appears that Clearwater Fire and Rescue officer
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Findings and Recommendations
training may not be adequately focuses on incident management or strategy or tactic~
for high-rise fires.
4.4.1.6 Internal Communications with Personnel
Based on interviews with fire station personnel, there appears to be a feeling of
"disconnect" between those personnel and the senior management. During station
interviews, it was repeated.ly stated that information desired by personnel typically came
from union sources.
4.4.1.7 Station Identitv Issue
During interviews, there appeared to be a greater sense of belonging to a
particular station than to the Clearwater Fire and Rescue Department.
4.4.2 Recommendations
4.4.2.1 Monitor Recruit Traininq Proqram
The department should conduct blind interviews with both the recruits and their
company officers during their second six months of employment, as to whether the new
recruit training course is of sufficient length and is properly to provide them with the
necessary skills. Input from the recruits and their officers should provide the Department
with valuable evaluation of the new system.
The recruit firefighter certification process provides a good "head-start;" however,
a solid departmental course with follow-up is appropriate and desirable.
4.4.2.2 Conduct a Structured Evaluation of Personnel in Fire Operations
The department should ascertain, through structured evaluation, that all members,
particularly officers and acting officers are proficient in fire fighting skills, personnel
fireground safety matters, and incident management. Further, should observation reveal
personnel exhibiting a consistent failure to adhere to department policies and practices,
significant disciplinary action should be taken to make it clear that such failure will not be
tolerated.
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Findings and Recommendations
Immediately after the events of the Dolphin Cove Condominium fire, it would hav~
been appropriate for the department to complete a structured evaluation of departmental
personnel knowledge, skills and discipline at emergency scenes to determine if these
deficiencies are widespread or limited to certain individuals.
The failure of Department personnel to adhere to Department fireground policies
and procedures can lead to disastrous consequences for both citizens and firefighters
and in this instance very nearly did for Clearwater Fire and Rescue Department
firefighters. Enforcement of these policies and procedures should be considered a life
and death situation.
4.4.2.3 Initiate Quarterly Observations of Emerqency Operations Proficiency
Exercises
All personnel who are eligible for assignment to Incident Commander duties (this
should include all Chief Officers) should be aware of both the actual capabilities and
limitations of the personnel and equipment they may command. Witnessing and on
some occasions participating in the recommended structured evaluations will provide
these officers this critical knowledge. Further, such action may lead to amendments in
both training and equipment specifications.
Such exercises should be held on a quarterly basis. The subject of such
evaluations should be provided to company officers well in advance (at least 2 months)
to provide those officers the opportunity to focus their company level training on those
subjects. Pre-incident planning material should be a part of this training.
4.4.2.4 Continue Post-Incident Reviews for All Chief Officers
As in performance exercises, Chief Officers can determine much about the
capability and limitations of personnel and equipment, which can lead to amendments to
existing training. Post-incident reviews should continue, with attendance by Chief
Officers mandated.
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Findings and Recommendations
4.4.2.5 Reauire Incident Manaaement Knowledqe for Officer Promotions
Promotion to all officer positions should require a demonstration of thecandidate's
working knowledge of large scale incident management and high-rise structure fire
tactics and strategy.
The "demonstration" should be in the form of a simulated fire situation,
The candidate's performance should be evaluated by senior officers (Deputy Chief
or Fire Chief) of the Clearwater Fire and Rescue Department or other departments.
4.4.2.6 Conduct Routine Station Visits
The Fire Chief and all Deputy Chiefs should make routine station visits with
intermediate officers. During our station interviews, it was repeatedly stated that
information desired by personnel typically came from union sources.
This straightforward action would provide information "from the horse's mouth" and
improve the relationship of senior management to line personnel.
4.4.2.7 Promote Personnel Rotation
The Department should engage in negotiations with the Union to consider a
means of personnel rotation.
This would balance the physical and mental stress on personnel and afford all
personnel equal opportunities at career development experience.
4.5 Emerqency Manaqement Coordination
4.5.1 Findinqs
4.5.1.1 Oraanizational Location of Emeraencv Manaaement
Disaster / terrorism response planning does not appear to have been a high
priority issue for the City. Currently the responsibility for this function is held by a vacant
position also responsible for code enforcement. The department desires to hire an
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Findings and Recommendations
Assistant Chief with emergency management experience and use that position for bot~
emergency management planning and code enforcement.
Discussions with Fire Department personnel and City Management officials
indicate that the City is requesting Federal grant funding to provide a full time position for
emergency management planning. Also see section 4.1.1.9.
4.5.2 Recommendations
4.5.2.1 Reassiqn Emerqency Manaqement to the Assistant City Manaqer's
Office
There does not seem to be a compelling reason to compensate someone at
the cost of a Fire Department Assistant Chief for this role. Further, it does not appear to
be a "part-time" job. We recommend the organizational transition of this function to the
Office of the Assistant City Manager.
4.6 Code Enforcement, Fire Investiaation, and Public Education
4.6.1 Findinqs
4.6.1.1 Current Effort to Establish Inspection Frequencies
The department advises that the code enforcement frequency inspection goal is to
achieve a 12 to 36 month standard of inspection frequency and that Inspectors are now
conducting a survey to establish which individual occupancies will receive the 12, 24, or
36 month inspection.
4.6.2 Recommendations
4.6.2.1 Implement a Self-Inspection Proqram for Certain Occupancies
The Department's effort to synchronize inspections is an excellent program and
should be encouraged. It is recommended that the program be slightly altered to allow
some occupancies to undertake a "self-inspection" program wherein inspection guides
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Findings and Recommendations
are provided to the occupant of the structure and then report the results to the
Department.
Varying the inspection cycle for each occupancy is a more efficient use of
inspection manpower. For example, a barber shop located in a free standing structure
may not require regular inspection by Clearwater Fire and Rescue Department
personnel. The occupant could be provided a self-inspection guide to be completed and
mailed to the Clearwater Fire and Rescue Department. The Clearwater Fire and Rescue
Department could then audit a certain percentage of these self-inspections each year.
On the other hand, for certain occupancies, inspections every few months or weeks may
be desirable. For example, a construction site may be a candidate for weekly inspection,
while an auto painting occupancy with a poor compliance record may be a candidate for
inspections conducted quarterly.
Original inspection cycle determination could be made during future regular
inspections, with modifications made as experience is gained.
4.7 Performance Measures
4.7.1 Findinqs
4.7.1.1 Activity Reportinq
The Department reports fire and life safety inspection activity in terms of number
of inspections at specific types of occupancies, time worked, and other functions
performed. These reports tend to indicate effort expended as opposed to objectives
achieved.
4.7.1.2 Performance Indicators
In the Clearwater Fire and Rescue "Strategic Plan, 2000-2004", six "Critical
Success Indicators" are listed with "Performance Indicators". They include:
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Findings and Recommendations
STRA TEGIC PRIORITY PERFORMANCE INDICA TORS
Safe, Healthy, Caring Community Increase % of fires confined to
room of origin
Reduce time elapsed to defib for
cardiac arrest
Increased number of citizens
trained
,
Prosperity Reduce code violations
Customer Focus Improve availability rate
One City, One Future increase utility, longevity and
modernization of facilities and
equipment
These "Performance Indicators" were developed by a team made up of exclusively
of Clearwater Fire and Rescue Department personnel.
4.7.1.3 Departmental Data
The Department's data system appears to provide inconsistent information.
In response to the draft of this report, the command staff reported there was a
single fire related fatality in 2003. In the "Monthly Activity Reports" for September,
August, and May of 2003, there were four reported fire fatalities. It appears that the
monthly reports indicate fatalities from any type or location of fire, whereas the command
staff tracks only those who die in structures.
The command staff, in response to the draft of this report, stated that "averages"
were not considered useful data by the Clearwater Fire and Rescue Department. The
Clearwater Fire and Rescue Department "Monthly Activity Reports" all indicate "Average
Response Times",
In response to the draft of this report, the command staff reported that there were
116 actual structure fires in 2001, 133 actual structure fires in 2002. In the document,
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Findings and Recommendations
"Clearwater Fire and Rescue Department Standards of Response Coverage" the
Department reported 116 structure fires in 2001, 173 in 2002.
The computer driven "fire Statistics Report 01/01/02 thru "12/31/02" had hand
made corrections in six different locations.
4.7.1.4 Response Times
The response goal indicated in the "Clearwater Fire and Rescue Standards of
Response Coverage" is six minutes for at least 90% of defined call types. Response
data made available to the study team (June, July, August, September, and December
of 2003) indicate:
. The average response time approximated 4 minutes and 20
seconds.
. Response time of six minutes or less was accomplished in well over
90% of the responses reported with one exception, that being
responses to structure fires in a single month (out of five months
reported).
. Again, with the exception of one month, responses were made in
less than five minutes.
. The "average" statistic does not equate to the percentile goal, but is
indicative of the department's ability to meet its six-minute goal.
. Accomplishing a 90% response time in 6 minutes or less is a
laudable achievement.
. "Response Measurements" appear to be from time of receipt of the
alarm by the responding unit( s) to arrival at the street address.
It should be noted that the American Heart Association has reported that, for
maximum effectiveness in cardiac failures, a response time of 4 minutes or less from the
time of the "attack" by persons capable of CPR or defibrillator operation (first responder
or EMT-1 level of competence) and arrival of personnel capable of performing advanced
life support in 8 minutes or less,
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Findings and Recommendations
This study was apparently done in-hospital, so medical personnel were often
immediately made aware of the "attack", When applying the 4 minute objective to
emergency response outside the hospital, several issues become apparent:
. How long after the "heart attack" was the 911 Operator contacted?
. How long did it take for the 911 Operator to determine the situation
so proper dispatch could be made?
. How much time transpired between receipt of the 911 call and
completion of dispatch of appropriate emergency responders?
. How long does it take to get to the side of the patient? (In
Clearwater, the data is collected)
Generally accepted response time objectives for structure fires are based on less
exacting research. The U.S. Bureau of Standards conducted tests on what they
believed were typical furnishings for a single family residence. Essentially, these tests
indicated that to halt the progression of fire before the entire room became involved and
began to spread to other "compartments", a cooling agent (generally water) would have
to be introduced into the room within 5 minutes or less from the time of open flame
appearing.
Again, as with EMS response there are several issues:
.
How long did the fire burn before the 911 Operator was contacted?
.
How long did it take for the 911 Operator to determine the situation
so proper dispatch could be made?
.
How much time transpired between receipt of the 911 call and
completion of dispatch of appropriate emergency responders?
.
How long does it take to get the actual site of the fire? (This is
particularly significant in the case of high-rise structures.)
.
How long until critical support resources carry out their functions
(rapid intervention team, ventilation, search and rescue, back-up
hose lines)?
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Findings and Recommendations
A further problem with the 5 minute fire response is that other governments hav~,
concluded that, with modern furnishings and decorating materials, critical temperatures
can be reached in less than 3 minutes from the time flame shows.
There is a National Fire Protection Standard on this subject (NFPA 1710).
However it's important to realize:
. The "Standard" is voluntary in that it has no power of law unless and
until an agency adopts the Standard.
. NFPA is not aware of any agency that has adopted the "Standard".
. The "Standard" is not backed up with hard science
. The "Technical Committee" that developed the standard had heavy
membership from the International Association of Fire Fighters (AFL-
CIG).
. Prior to the NFPA meeting where the "Standard" was brought to the
general membership for a vote, there was a large influx of new fire
service members. Since its passage, the number of fire service
members has reduced significantly.
There are few if any fire agencies in the nation can meet the requirements of
NFPA 1710 on a consistent basis.
4.7.1.5 Performance Measures for Trainina
The current performance measures for training are largely measuring effort rather
than results. Time spent training does not necessarily equate to high performance,
especially in an environment where administration and labor do not appear to have
shared goals.
4.7.1.6 Recoanition for EMS Service Level
The Fire Chief advises that the Clearwater Fire and Rescue Department has been
recognized for their outstanding "time to first shock". He advises that this award
acknowledges the crews' ability to quickly verify patient EKG rhythm followed by rapid
defibrillation.
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Findings and Recommendations
According to the Fire Chief, this one performance measurement has significantl~
affected the lives of people in Pinellas County, which is recognized as having one of the
highest numbers of "cardiac arrest saves" nationally.
4.7.2 Recommendations
4.7.2.1 Develop Additional Inspection Performance Reports
This report recommends that the department develop additional inspection
performance reports to indicate performance against the department's "standard of
inspection frequency".
Suggested code enforcement performance measures include:
. Comparison, on a quarterly basis, with the "standard of inspection
frequency", i.e., number of inspections required each quarter to meet
the "standard of inspection frequency" compared to the actual
number of inspections.
. Comparison inspection numbers by quarter, e.g., number of
inspections made previous year compared to actual number for
current year.
4.7.2.2 Review Performance Indicators
This report recommends that the department reconsider the "Performance
Indicators" to more clearly indicate accomplishment of the "Strategic Priorities". In so
doing, it is suggested that key players from outside of the department contribute to the
evaluation of performance indicators to support fire staff involved in the process.
Suggested amended "Performance Indicators":
STRA TEGIC PRIORITY PERFORMANCE INDICA TORS
Safe, Healthy, Caring Increase % of fires confined to room of
Community origin
Reduce time elapsed to defib for
cardiac arrest
Incre::n:;ed numbor of citizonc tr3inod
Reduce number of injuries related to
structure fires.
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Findings and Recommendations
STRA TEGIC PRIORITY PERFORMANCE INDICA TORS
Prosperity Reduce code viol::1tionc
Reduce average dollar loss per fire.
Customer Focus Improve ;Jv:Jilability r:Jte
With voluntary inspection, check at
least 1000 smoke detectors for viable
battery condition.
One City, One Future incre;Jce utility, longevity ;Jnd
moderniz3tion of bcilitiec 3nd
equipment
Reduce fire related injuries and dollar
loss in those areas of the city most
adversely affected by fire.
4.7.2.3 Create Useful Reports for Upper Manaaement Review
The current data system, to a large extent, does not seem based on
"performance", but rather on effort expended. A substantial goal of the department
should be to determine what data is useful for city management oversight of the
department. The system should be improved to meet those identified needs.
4.7.2.4 Establish a Method of Evaluatina Trainina Efforts
The Clearwater Fire and Rescue Department should develop means to determine
the results of the department's training efforts.
Some "result testing" could include (but not be limited to):
.
Determining the time each Engine Company requires to put a
portable heavy stream in operation.
.
Determining the time each Engine Company requires to take a 1.75"
hand line to the third floor and generate a viable hose stream.
.
Determining the time Truck Companies require to accomplish an
external rescue from the third floor.
.
Determining the time required for "Task Force" to cover a specified
area with waterproof tarps (salvage covers).
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5.0 IMPLEMENTATION PLAN
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5.0 IMPLEMENTATION PLAN
EXHIBIT 5-1
CITY OF CLEARWATER
IMPLEMENTATION TABLE FOR FIRE AND EMS
October 2004
($32,985)
4.1.2.2 Reassign the Assistant Chief Assistant City October 2004 Improved Savings as part of the
Positions Manager; Fire Chief Management overall restructuring.
Presence; Emergency
Management
Coordination.
4.1.2.3 Eliminate the District Chief Assistant City October 2004 Flexibility; Savings as part of the
Position Manager; Fire Chief; Responsiveness; overall restructuring.
Human Resources Upward Mobility;
Director Fire Response
Capacity
4.1.2.4 Establish Nine New Fire Captain Assistant City October 2004 Flexibility; Savings as part of the
Positions Manager; Human Responsiveness; overall restructuring.
Resources Director Upward Mobility;
Fire Response
Capacity
4.1.2.5 Establish Four New "Special Assistant City October 2004 Flexibility; Savings as part of the
Assignment Captain" Positions Manager; Human Responsiveness; overall restructuring.
Resources Director Upward Mobility;
Fire Response
Capacity
4.1.2.6 Eliminate Two Investigator Assistant City October 2004 Flexibility; Savings as part of the
Positions Manager; Human Responsiveness; overall restructuring
Resources Director Upward Mobility
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Implementation Plan
EXHIBIT 5-1 (Continued)
CITY OF CLEARWATER
IMPLEMENTATION TABLE FOR FIRE AND EMS
4.1.2.7 City Manager October 2004 None
4.1.2.8 Reassign Administrative Support Fire Chief July 2004 Effectiveness of the None
Positions to the Fire Chief Function
4.1.2.9 Delete the Training Coordinator Assistant City October 2004 Efficiet1cy and Savings as part of the
Position Manager; Human Effectiveness overall restructuring.
Resources Director
4.1.2.10 Assign Newly Appointed Assistant City October 2004 Flexibility; Upward Savings as part of the
Lieutenants to Task Forces Manager; Fire'Chief Mobility; Efficiency overall restructuring.
4.1.2.11 Require both Fire and EMS Assistant City October 2004 Efficiency and None
Experience for Chief Officers Manager; Human Effectiveness
Resources Director
4.2.2.2 Staff Engine Companies with Assistant City October 2004 Standardization; Savings as part of the
Three Personnel Manager; Fire Chief Effectiveness overall restructuring.
4.2.2.3 Deploy a Rescue Unit at all Assistant City October 2004 Efficiency; Savings as part of the
Stations Manager; Fire Chief Effectiveness overall restructuring.
4.2.2.4 Establish the Task Force Concept Fire Chief October 2004 Efficiency; Savings as part of the
at Stations 45 and 48 Effectiveness overall restructuring.
4.2.2.5 Delete the Lead Paramedic Assistant City October 2004 More ALS Units; Savings as part of the
Position; Increase Paramedic Manager; Fire Chief; Responsiveness; overall restructuring.
Positions Human Resources
Director
4.2.2.6 Reduce the Number of Lieutenant Assistant City October 2004 Efficiency; Savings as part of the
Positions Manager; Fire Chief; Flexibility overall restructuring.
Human Resources
Director
4.3.2.1 Retain and Strengthen the Pre- Fire Chief Ongoing Improved Service None
Incident Planning Program Level
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Implementation Plan
EXHIBIT 5-1 (Continued)
CITY OF CLEARWATER
IMPLEMENTATION TABLE FOR FIRE AND EMS
Initiate a Comprehensive Fire Chief Coordinated Services
Community Fire Protection Master
Plan
4.3.2.3 Make Selected Policy and Assistant City October 2004 Efficiency; None
Practices Changes Manager; Fire Chief Effectiveness
4.3.2.4 Establish a Fleet Replacement Assistant City October 2004 Avoids Large Capital Annual Set-Aside
Fund Manager; Fire Chief Replacement Costs
4.3.2.5 Evaluate Mutual Aid Imbalance Fire Chief Begin October 2004 Service Level and None. Internal Staff
Resource Accuracy
4.4.2.1 Monitor Recruit Training Program Fire Chief; Human Ongoing Program Viability None. Internal Staff
Resource Director
4.4.2.2 Conduct a Structured Evaluation Fire Chief; Chief Ongoing Firefighter Safety None. Internal Staff
of Personnel in Fire Operations Officers
4.4.2.3 Initiate Quarterly Observations of Fire Chief; Chief Ongoing Firefighter Safety None. Internal Staff
Emergency Operations Officers
Proficiency Exercises
4.4.2.4 Continue Post-Incident Reviews Fire Chief; Chief Ongoing Firefighter Safety None. Internal Staff
for All Chief Officers Officers
4.4.2.5 Require Incident Management Fire Chief; Human Ongoing Safety; Effectiveness; None
Knowledge for Officer Promotions Resource Director Efficiency
4.4.2.6 Conduct Routine Station Visits Fire Chief; Deputy Ongoing Improved None
Chiefs Organizational
Relationships
4.4.2.7 Promote Personnel Rotation Fire Chief; Human Ongoing Flexibility; Efficiency None
Resources Director
4.5.2.1 Reassign Emergency City Manager October 2004 Effectiveness of the None
Management to the Assistant City Function
Manager's Office
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Implementation Plan
EXHIBIT 5-1 (Continued)
CITY OF CLEARWATER
IMPLEMENTATION TABLE FOR FIRE AND EMS
4.6.2.1 Implement a Self-Inspection October 2004 Efficiency; None
Program for Certain Occupancies Effectiveness
4.7.2.1 Develop Additional Inspection Fire Marshal Ongoing Performance Analysis None
Performance Reports
4.7.2.2 Review Performance Indicators Chief Officers Ongoing Performance Analysis None
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4.7.2.3
Create Useful Reports for Upper Chief Officers
Management Review
Ongoing
Performance Analysis
None
4.7.2.4
Establish a Method of Evaluating Chief Officers; Human
Training Efforts Resources Director
Ongoing
Performance Analysis
None
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