10/19/1999 (2)
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Fire'Task Force
,MINUTES
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FIRE TASK FORCE MEETING
CITY OF CLEARWATER
October 19, 1999
Present:
Bill Horne
Fran Sriskman
Joe Calia
Joe Evich
Rowland Herald'
Russ Kimball
George Krause
John Lee
Scott Nail
Bill Schwab
William Sherman
Duke Tieman'
Chair (non-voting)
Task Force Member ,
Task Force Member- arrived 3:06 p.m.
Task Force Member
Task Force Member
Task Force Member
Task Force Member
Task Force Member
Task Force Member - arrived 3: 11 p.m.
,Task Force Member
Task Force Member
Task Force Member.
Jean Stuart
Doug Williams
Task Force Alternate
Task Force Alternate
Also Present:
John Carassas
Jack Callahan
Charlie Flowers
Margie Simmons
Tina Wilson
Sue Diana
Cynthia E. Goudeau
Patricia O. Sullivan
Assistant City Attorney
Assistant Fire Chief
'Deputy Fire Chief/Emergency Mgmt.
Financial Services Administrator
Budget Director
Asst. City Clerk - departed 4:02 p.m.
City Clerk - arrived 4: 11 p.m.
Board Reporter
'I
The Chair called the meeting to order at 3:00 p.m. at City Hall.
To provide continuity for research, items are in agenda order although not
, necessarily discussed in that order.
ITEM #2 - Aooroval of Minutes
It was noted Russ Kimball had been absent on October 12, 1999.
Member Schwob moved to approve the minutes of October 12, 1999, as
corrected. The motion was duly seconded and carried unanimously.
ITEM #3 - Discussion of Knoof Reoort/Citv Resoonse
Fire Chief Rowland Herald reviewed the background of the Knopf Report.
Following the RFP (Request for Proposals) process, the $40,000 study was
contracte9 and took place between March and June 1998. The Executive
Summary contains many controversial recommendations. For example, some do
not account for the County's fire services role. Fire Chief Herald reviewed the
mft10c99
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10/19/99
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Knopf Report Recommendations & Implementation. (Attached as Exhibit A to these
minutes)
While the Commission was unawa're of problems, the Fire Department faced
difficulties related to unfunded capital improvement needs, decreased staffing
levels, and community changes. In April 1999, Fire Chief Herald's State of the
Department presentation to the Commission addressed these concerns.
Fire Chief Herald referred to the report's recommendations related to
Administration. Limiting staff to one Deputy Chief per shift was tried and
necessitated backup from mutual aid departments who were unfamiliar with City
staff, procedures, and apparatus. Lieutenants, who took on the lead role, were
unable to meet their hose line duties. Safety related problems compelled the
Department to end the trial halfway through the SO-day experiment.
Instead of adding 3 Deputy Chiefs as recommended, the Department added
2 and assigned two functions to one position. While the report recommended
adding 3 firefighters, the City added 9 in its FY (fiscal year) 1 999/00 budget. The
Department found the study's recommendation to shuffle positions to achieve this
goal unattainable.
.~
The Department had deleted the Assistant Fire Marshall position. Fire Chief
Herald reported the Department had acquired responsibility for Emergency
Management without added resources. He said, as Department staff is not trained
to handle budgetary requirements, the recommendation to delete the Administrative
Support Position is not planned. As recommended, the relocation of chief officers
to downtown administration offices is underway. He felt the training director
should remain at the training facility.
In response to a question, Fire Chief Herald said the Department has 6
divisions, each with a District Chief. The position, "Captain," was renamed
"District Chief" to meet Countywide standardization. Two District Chiefs are on
duty during each 24-hour period and run the Department after administrative hours.
Each fire station has a Station Officer on duty. '
Regarding the report's recommendations related to Apparatus, Fire Chief
Herald said the Department has disposed of the 1941-brush unit and assigned a
rescue unit to Sand Key. An apparatus replacement schedule is included in the
Department' 55-year plan. Fire apparatus replacement is ahead of schedule and will
result in reserves being available when front line equipment needs repair. Recent
City investment in equipment is estimated at $1 A-million.
~
In response to a question, Fire Chief Herald said replacement of the aerial
truck is scheduled for October 2000. The replacement schedule calls for major
refurbishment after 10 years of use, and, after 5 more years, retirement for use as a
reserve unit for another 5 to 7 years. Based on this schedule, the Department's
other aerial requires replacement in 2003. In response to a question, he said the
budget includes the cost of refurbishing apparatus that is 10 years old. Some funds
mft10c99
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10/1 9/99
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are carried over to the next year due to lengthy delivery schedules. While rescue
vehicles cost approximately $775,000, aerial equipment costs more than $1-milllon.
In response to a question, he said ordering customized apparatus does not add to
their cost. Most vehicles can be delivered in 3 to 4 months. Aerials take at IIl1ast
one year.
" '
Fire Chief Herald addressed the report's EMS (Emergency Medical Service)
items. A rotation system for paramedics is deemed important to avoid burnout
problems related to this high stress occupation. It also is important for paramedics
to maintain their fire suppression skills. Human Resources discouraged the
Department from requiring paramedic certification for new hires as that would
exclude a significant number of protected classes and is not in the community's
best interest. In response to a question, he said the Department is establishing
guidelines for career paths. From 3 to 5 years of experience is necessary before a
paramedic can take charge of a scene. By that time, the City already has made a
significant investment in that person. All entry-level positions require firefighter and
EMT (Emergency Medical Technician) certification. Concern was expressed the City
may 110t be able to meet future paramedic needs due to the number who are
dropping their patches. A system offering a minimum 6 to 8 month rotation was
recommended.
-
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The study's recommendation related to EMS training is impractical as the
County already pays 75 % of the salaries for these 3 positions. The County funds
training through SPJC (St. Petersburg Junior College) to meet recertification
requirements. In response to a question, he said the average cost to fund the 10.5
staff members necessary to cover three positions is $650,000 annually. The
County's $200,000 contribution covers little. The Department received no
reimbursement for equipping all vehicles with automatic external defibrillators.
Addition of a clerical position is planned once retirements lower the number of
administrative positions.
Concern was expressed regarding the percentage of County taxes collected
from Clearwater that are returned to the City. Fire Chief Herald reported in FY
1998/99/ City taxpayers paid $3,921,000 to the County while the City received
$2,883,000 in return, resulting in a $1-million shortfall. It was requested staff
report on funding arrangements for other County Fire Districts. Fire Chief Herald
said the collected millage must be spent on EMS needs.
Regarding the report's Emergency Management recommendations, Fire Chief
Herald indicated Deputy Fire Chief Charlie Flowers serves as the City's Emergency
Manager and Public Information Officer. A clerical position, serving more than 1
position, is earmarked for the future. Recommendations related to equipment have
been implemented. In response to a question, Fire Chief Herald said the Department
budgets $10,000 annually to replace hoses. The report only addresses areas where
the Department is out of compliance.
-J
Regarding the report's Facilities recommendations, Fire Chief Herald said
construction of new fire stations on Sand Key and in Northwest Clearwater are part
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10/19/99
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of the Department's long-term plan. A 2-person team has been assigned to Sand
Key. Shifting marine rescue hardware to Sand Key is being considered. Until an
above ground fuel tank is constructed, City staff has begun to transport fuel to the
beach to refuel equipment. While fire sprinklers have been installed at all stations,
Fire Chief Herald reviewed the safety and health issues that require refurbishment of
all stations. District Fire Chiefs have been assigned total responsibility for the
upkeep and maintenance of each station. Deputy Fire Chiefs will handle periodic
inspections.
Fire Chief Herald addressed the report's recommendations related to the Fire
Marshall. Hiring a Fire Protection Engineer may be implemented before FY 2002.
Relocating the Fire Marshall to the MSB (Municipal Services Building) was not
possible due to a lack of space. The move would have provided a one-stop service
for permitting requests. Instead, a review process at the Fire Station is necessary.
The recommendation to start a voluntary home inspection program has not been
considered. Hand held data entry computers for Fire Marshall use are being
considered 8S a way to save % day per week. While inspections should be annual,
the current cycle is 36 months. As more items are found to be out of compliance,
necessary rechecks further delay the inspection process. The recommended clerical
position will be shared by two divisions. The Department has no plans to provide
inspectors with cell phones as portable radios meet current needs. Although cell
phone/radios are available, the call volume does not justify their ~ost.
.........,.
_J
The meeting recessed from 4:02 to 4: 11 p.m.
Regarding the report's Human Resources management recommendations,
Fire Chief Herald said the time restriction on trading shifts was removed. Guidelines
related to the implementation of a formal employee recognition program have been
drafted. He commended the Union for hosting the awards banquet and agreed that
not enough has been done. A Fire Inspector now serves on the City's Employee of
the Month committee. Fire Chief Herald said his open door policy encourages staff
input. He said a City priority is to implement a diversity-recruiting plan.
Fire Chief Herald addressed the Incident Command System, indicating both
recommendations had been implemented. Development of a standard
accountability system is ongoing.
Regarding the report's recommendations related to Internal Communications,
Fire Chief Herald said the internal newsletter is scheduled for publication beginning
in December 1999. Increased dialogue between labor and management is being
established. Human Resources has worked with the Department on a coUective
agreement process. The Fire Chief addresses issues on half-hour monthly programs
aired via closed circuit. Others will host future shows. Weekly visits by the Fire
Chief to all 3 shifts at the 7 fire stations and administrative offices will be difficult
to achieve. Administration will accompany the Fire Chief on these visits.
, :..)
Fire Chief Herald addressed the report/ s Non-Emergency Services
recommendations. Department interaction with the community is improving with
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10/19/99
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f~ Increased requests for Department participation in neighborhood events. He said an
, .' important component of the Departmenes marketing plan is to engage the
community. A business marketing plan is needed.
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Regarding the report's recommendations related to Standard Operating
Procedur,es, Fire Chief Herald said the Medical Operations Manual, which provides
guidelines, has been revised. Annual reviews and updates are planned. The manual
addresses what is expected when staff is confronted with an emergency. A basic
operating plan and code of conduct are needed as separate documents.
Fire Chief Herald addressed the report's recommendations related to Staffing
and Standards Compliance. 'Staffing levels have been increas..:d from 38 to 42.
The Department has agreed to review and adhere to the Fair Labor Standards Act.
Training has been implemented related to hostile incidents occurring during a call.
Establishment of minimum staffing is related to the number of personnel who can
be onMsite at an emergency within critical time limits. Additional responders are
assigned to high hazard occupancies, such as nursing homes, and hazardous
'material storage. '
Regarding the report's Training recommendations, Fire Chief Herald said no
great strides have been made to provide Chief Officers with interpersonal training.
A Career Path Handbook has been completed recently. Installation of exercise
equipment to meet fitness initiatives is underway. Updating the training facility is
planned for year 2 of the 5-year plan.
Fire Chief Herald addressed the report's recommendations related to
"Unclassified." He said the DART IDisaster Assistance Response Team) program
has been implemented, as citizens must be self sufficient for 72 hours following a
major disaster such as a hurricane.
In response to a question, Fire Chief Herald said staff's application for a
$300,000 grant to expand and upgrade the training facility to also serve as an
emergency operation center had been denied although the City was awarded a
$ 50,000 grant for debris remo~al equipment.
In response to a question, Fire Chief Herald said adding a 4th person to the
beach station is not proposed as staffing is not available. The 9 new employees are
moving into current positions until productivity needs are better identified. In
response to a question regarding the report's recommendation to decrease the
number of administrative personnel, the Fire Chief said his current level of staffing
is necessary to move the Department forward. Expected retirements will lower that
number. The national average level of administrative personnel was requested. Fire
Chief Herald said administrative needs should decrease within several years. It' was
noted comparisons are difficult as topography challenges differ between
communities. The Department also meets marine rescue needs for Tampa Bay,
Clearwater Harbor, the Gulf of Mexico, and numerous lakes. Funding for providing
fire services to enclaves within the district is based on a State mandated formula.
mft10c99
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10/19/99
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ft was recommended construction of new fire stations 'begin immediately.
Fire Chief Herald said the Coast Guard has proposed a more permanent arrangement
with the City regarding Sand Key whereby staff could use Coast Guard facilities in
return for responding to incidents with Coast Guard personnel. The matter is under
discussion and requires Coast Guard district approval.
It was suggested the $680,000 in Penny for Pinellas funds previously
budgeted for the training facility be earmarked for a new station in Northwest
Clearwater. It was questioned when the Commission had reallocated these funds.
Fire Chief Herald reported the budgeted items no longer met Department needs. It
was noted the $12-million federal grant to be used toward construction of a new
Memorial Causeway Bridge will replace Penny for Pinellas funds budgeted for that
purpose. It was recommended remaining funds be dedicated to the Department. In
response to a question, Fire Chief Herald said a developer has expressed interest in
Clearwater Mall station property. It was stated the Task Force needs all related
information to make an informed recommendation.
It was suggested impact fees paid by Sand Key developers be used to meet
Department needs. It was noted only $167,000 of those fees remain to beautify
Gulf Boulevard after widening. It was felt those fees should have been used to
address public health and safety needs.
Member Evich moved to recommend that the Chief submit a budget
---\ amendment to reallocate $3.4-million for construction of fire stations on Sand Key
; .::) and in Northwest Clearwater. The motion was duly seconded.
It was suggested the motion be delayed until more information is available
regarding the developing situ~tion with the Coast Guard. It was recommended
discussion of the federal funds be scheduled for a future meeting. Concern was
expressed remaining funds not be allocated to another project before the
Dopartment's demonstrated needs are considered.
The seconder withdrew his second. Member Evich withdrew his motion.
ITEM #4 Discussion of Fire Plan Needs & Budget - Cont'd to October 26, 1999.
ITEM #5 - Miscellaneous
Establish Future Agendas
Chair Horne said Pinellas County is scheduled to return next week to present
the remainder of its report on Clearwater. Consensus was to limit the County's
presentation to 30 minutes.
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The Fire Chief will report on his survey of 51 State fire districts regarding
funding source options. In response to a question, he said the County is developing'
a training facility by the St. Petersburg/Clearwater Airport which the Department
will use for training not available on-site.
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10/19/99
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".. It was suggested the committee define funding reqlllrement~ before
determining funding sources. A report on County recommendations for fire station
placement was requested.
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The next meeting is scheduled on October 26, 1999, at 3:00 p.m. at City
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The meeting adjourned at 5:25 p.m.
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Chair
,Fire Task Force
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EXHIBIT A -- 10/19/99 FIRE TASK FORCE ~mETING
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Knopf Report Recommendations & Implementation
Action Item
Implementation
Administration:
Delete District Chief Rank... The Department implemented this
recommendation for a ninety.day trial period. Results not satisfactory. No
future plans. '
Add six Captalns--- Recommendation not Implemented & not planned
Assign Captains to Apparatus-Recommendation not Implemented & not
planned.
Add three Deputy Chlefs- Added Deputy Chief of logistics. This
combined DC Maintenance and DC logistics. Added Deputy Chief
Emergency Management. (Total of two).
Add three Fire Fighters (DCs)-- Nine Firefighters added-2000 Budget
Year
,:)
Restructure Deputy Chiefs - Not implemented - 90 day trial not
satisfactory .
Delete Asst. Fire Marshall-Implemented.
Delete Admin Supt. Position-Not implemented & not planned.
locate all Chief Officers in Administration offices---Work In progress.
Apparatus:
Immediately dispose of Station 50 brush unit-Done.
Acquire a fire/EMS vehicle for Sand Key--Rescue unit in place. (Not fire
capable).
Develop an apparatus replacement schedule-In place
Replace the following fire apparatus ASAP: E47, ESQ, R4S, R49. RSo-
Done ...additlonally E4S, E48, & E49 scheduled for this year.
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Emergency Medical Service:
. Develop a paramedic rotation system - Employee group Is
studying paramedic Issues at this time. Recommendations will soon result.
Require paramedic i:ertiflcatfon for new hires -
Hire a Civilian EMS Training/Quality Assurance coordlnator-
Provide a clerical position-Planned -a shared clerical position from pool.
Emergency Management:
Assign responsibility to a deputy Chief-Done. Chief Flowers appointed.
Hire an Emergency Management Coordinator-Chlef Flowers serves at
the Division level as the Emergency Manager and also handles duties as our
Public Information Officer.
Provide a Clerical posit~')n-Planned-clerlcal position will be from pool.
Equipment:
Purchase a computer for self~contained breathing apparatus testing-
Done.
Conduct annual SCBA tests - Implemented.
Require daily SCBA checks --- Implemented.
Implement replacement cycles for equipment - Implemented.
Facilities:
Place a station (2Personnel) on Sand Key -Implemented for the short
term at Sand Key Coast Guard Station
Place a New Station at Highland Ave and Logan St. - A station in N.W.
Clearwater Is part of our long.term plan (FY2001).
Shift water rescue hardware to Sand Key - Under review.
Provide Diesel fuel for apparatus on beach - Implemented.
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Install fire sprinklers at Station 5O-Completed.
Relocate/replace stations: 45, 46, 49 - rn long range plans.
Renovate 5tatlons 47, 48, 50 - Replacement in long range plans.
Provide bie-hazard decon facilities - In plan as part of station
replacement or refurbishment.
Provide SCBA cleaning facilities - In plan as part of station replacement or
refurbishment.
Provide turn-out cleaning facilities - In plan as part of station replacement
or refurbishment.
, Provide individual apparatus exhaust venting - New apparatus is
equipped.
Conduct periodic fire station inspections.. Implemented 7/99.
8
Fire Marshall:
Eliminate Assistant Fire Marshall - done.
Hire a graduate Fire Protection Engineer - Planned for FY 2002.
Relocate FM office and inspectors to Municipal Services Building - Not
plann~d due to lack of space. Will relocate in annex near station 45.
,Start a voluntary home inspection program - No plan.
Acquire record management software - Planned for FY 2001.
Add a full-time clerical position - Will share in tWo new clerical positions.
Provide inspectors with computers - Planned for FY2000.
Provide inspectors with cell phones - No plans.
,:)
Human Resources Management:
Remove 72-hour trade-time restriction - Done.
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, Select Employee of the Month - Planned for FY2000.
Develop an annual awards banquet - No plan
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Implement a diversity recruiting plan - Planned with cooperation from
Human Resources, Human Relations, and the City Manager's offices.
Incident Command System:
Provide Incident command training -, Implemented.
Provide accountability system training - Implemented.
, Internal Commm l1cations:
Develop an internal newsletter - Planned Chief Flowers to edit .. Dec.
1999.
~.)
Provide employee involvement in decisions - Organizational
development teams and various committees involved in apparatus
purchases, and career pathways. SOG's etc.
Provide feedback loop for employee input - All divisions and chiefs
welCome Input and ideas. Standard Operating.
Broadcast live interactive Chiefs program - Chief films monthly program
of department news.
Fire Chief make weekly station vi~its - A Department priority.
Non.Emergency Services
Have fire station crew's visit schools - Implemented .. more commonly
school groups wUl visit fire stations.
Become active in neighborhood associations - Implemented ... Dart
program and city neighborhood program.
S.D.P.:
,Conduct annual SOP review by employees - Implemented;
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Staffing:
Establish minimum duty staffing by position - Implemented.
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Maintain line staffing when creating positions - Agreed.
Standards Compliance:
Assure FLSA compliance In all functions - Agreed.
Provide training on hostile work environment - implemented 1999.
Establish minimum fire-ground staffing - Implemented by adding
" additional unit(s) to initial responses. '
Enhance SCBA maintenance - Implemented -Additional personnel trained
In malntenance-1999
Training:
Provide a part-time clerical position - Will have use of two new pool
clerical employees
Provide Chief Officers interpersonal training -
Provide Career development training - Implemented--Lt. Rowell and
Training Division developed a Career Path Handbook. '
Provide supervisory training - Priority.
Provide leadership Training -
Use iAFF/IAFC Wellness Fitness Initiative -
~pdate Training Facility - In long'range plan for FY 2000.
Develop pre-fire plans for target hazards - Implemented.
Unclassified:
, Hire a civilian Public Information Officer - Chief Flowers is also Public
Information Officer.
Develop a citizen fire academy - Implemented- DART Program.
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Fire Services Management Study
1 Final Report'
for the
C!earwater Fire & Rescue Department
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Fire Services Management Study
Final Report'
for the
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Clearwater Fire & Rescue Department
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Richard A. Knopf & Associates, Inc.
1424 Old Orchard Drive
Irving, Texas 75061
800-945-1715
FAX 972.579-0841
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Clearwater Fire Department Management Study
() Final Report
Table of Contents
t j
./' Introduction Preface 1
Executive Summary 4
Administration Fire Department Administration 10
;
Emergency Management 17
Human Resource Management 19
, ' , <<
Internal Communications 23
....,
Standards CompHance 25
Training 28
Unclassified Items 31
I /-" FacllltJes Fire Station Conditions 33
, ,
\.--J Fire Station locations 35
Apparatus Fire Apparatus 38
Rescue Appara~us 40
Tools and Equipment 41
Services Emergency Services 43
Fire & Rescue Apparatus Staffing 45
Fire Marshal 49
. Conclusion Summary of Major Recommendations 51
AppendIces A. Glossary
B. Proposed Facility Improvements II
C. Fire Station location Maps ill
D. Apparatus Replacement Schedule Iv
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Clearwat.r Fire & R..cu. D.partment Management Study
)()
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PREFACE
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Background
On March 19, 199B the Clearwater City Commission awarded a contract to Richard A Knopf &
Associates. Inc. to conduct a complete management study of the Clearwater Fire & Rescue
Department. The firm of Richard A. Knopf & Associates Is a Texas corporation providing
municipal consulUng services In the area of public safety. Dick Knopf, r.ompany president. is a
retired Fire Chief, having served for thirty years In five cities. Eighteen of those years were as
Fire Chief in three communities, one of which Is smaller than Clearwater, one approximately the
same size, and one larger than Clearwater. The second consultant on the Clearwater assignment
is James Roberts, who served with the Midland, Texa~ Fire Department, a city the size of
Clearwater, for 36 years. 13 years as Fire Chief.
I:::)
The work on this contract started on March 20, 1998 In a meeting with Fire Department leaders to
layout the action plan for the project The consultants were in Clearwater for the next three
weeks, gathering information and learning about the community. A citizen survey was also mailed
, to 4000 Clearwater residents and businesses, to learn the local perspective on the Clearwater
Fire & Rescue Department While valuable for Internal Fire Department purposes, the survey
results are not included in this report due to the data's limited application in the management
study.
Process
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The consultants' first step In conducting the study was to meet with all Fire Department
employees to acquaint them with the consultants and the process to be used. These meetings
were in the form of21 'focus groups', ranging in size from three employees to ten employees.
1
CI.arwat.r Fire & R..cu. D.partment Man.goment Study
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These discussions provided all employees the opportunity to ask questions regarding the study,
as well as the chance to tell the consultantG positive areas of Fire Department employment, and
areas that could be Improved, In their opinion.
The employees were guaranteed anonymity In making comments: their participation was valuable
to the consultants In understanding the history of the Clearwater department. The consultants
also met with Executive Board members of International Association of Fire Fighters Local 1158,
the Clearwater Firefighters Association.
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extremely cooperative and courteous, and provided every assistance requested by the
consultants. Earfy In the process of the study, Rowland Herald was permanently appointed as
Fire Chief. It is the consultants' opinion that this appointment was a significant positive event for
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In addition to the focus groups. which Included the ranks of Firefighter. Driver/Operator, and
Lieutenant, the consultants met Individually with Clearwater Chief Officers, spending considerable
time with the then-Interim Fire Chief Rowland Herald. All Fire Department personnel were
the Clearwater Fire & Rescue Department Chief Herald enjoys universal respect among his
employees, a factor that will have long-term benefit to the City.
The consultants also interviewed numerous people outside the Fire Department who have
Interaction with the Department Those who were interviewed are listed below in random order:
Michael Roberto, City Manager
Steve Rosenthal, Interim Human Resources Director
Sidney Klein, Chief of ponce
Art Kader, Interim Parks and Recreation Director
Pamela Skyrme, Organizational Development Director
Vic Chodora, Building Official
Jeff Kronschnabl, Central Permitting Interim Director
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CI.arwatlr fire & R..cu. D.partm.nt Man.gement Study
n
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Plnellas County Fire Dispatching Supervisor
Commander, U. S. Coast Guard Station
James Goodloe. ReUling Fire Marshal
I
In addltlon to the listed Interviews, the consultants made thorough Inspections of all fire station
and training facilities, all fire and rescue apparatus, and examined various records which are
Important for Fire Department operations.
The result of these activities, and the subsequent analysis by the consultants, Is contained In thIs
report. The study process Included the Identification of STRENGTHS, OPPORTUNITIES, and
RECOMMENDATIONS. These three documents, which are found in the Executive Summary
,
which follows, form the' foundation for this report The matn report body will expand In detail on
these Items; the Executive Summary primarily co~talns the three listings and some overall
,0 commentary.
\,
This report, and the accompanying recommendations, focus on a ,comment by City Manager
Michael Roberto to the consultants: I.e.. It Is the City Manager's goal to develop excellence In
all aspocts of tho Fire Department. The recommendations herein, when Implemented, wl1l
produce that excellence in the Clearwater Fire & Rescue Department
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CI.arwater FIN & RncuI o.plrtnMnl Management Study
i'
EXECUTIVE SUMMARY
L
this Executive Summary Is Intended to reduce to a ffNI pages the overall observations and
recommendations of the consultants. For purposes of brevity, the strengths, opportunltlos, and
recommendations are 'produced In bullet-ntatement form. The main body of the report will expand
on these Items In detail. The Glossary In Appendix A expands the names of agencies and other
organizations which are referred to by Initials (example: NIOSH).
The first observation the consultants wish to make Is that the Clearwater Fire & Rescue
....
Department provides excellent emergency services. The Department has a good service
orientation; its persoimel are dedicated and hard-working. The consultants observed numerous
occasions where employees were donating time and materials to further the mission and the
image of the Department We have listed some of the strengths of the Department; however" its
..
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major strength is its people. We wish to acknowledge and recognize this Important factor at the
outset of thIs document
In the process of the study, it became clear that the Clearwater Fire & Rescue Department has
been seriously han~ppE:d in the past due to budget ~nstralnts, some of which were artificially
created. As a result. the infrastructure has not been maintained and updated In a fashiol1 which
.
will allow the Fire Department to provide both excellent ~ and a productive work
environment for its employees. In recent years, the Fire Deparbnent has successfully sought
State and Federal grants to assist In funding some non-traditional community services;
unfortunately, grant funding opportunities are in short supply for emergency service Infras~cture.
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CI.arwat.r Fire & Relcue Department Managem.nt Study
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The other major area where the Fire Department has suffered Is In the staffing of Its apparatus.
While the total nUf'lliler of employees has remained nearly constant, on-duty fire apparatus ltaffing
, has declined somewhat, partly due to the creation of additional Chief Officer ranks. The
consultants recommend a total restructuring of the admJnlstr&tive and supervisory functions of the
Fire Department. with a resultant Increase In emergency staffing and effectiveness. The
recommendations Include the hiring of entry level positions to fill vacancies caused by the creation
of naw promoted ranks.
,
The listing of strengths, opportunities, and recommendations on the following pages wUl,
summarize the consultants' observations and analysis. For a full understanding of the Usted
recommendations, It will be necessary for the reader to continue in~o the main body of the report,
where expanded descriptions and graphics will clarify the issues.
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Clearwattr Fire & ROIcu. Oepartm.nt MlnlglJmlnt Study
Human ROlourco Management
History of Internal employee commendations
Well documented disciplinary history ,
CIty-wlde disciplinary guidelines
etomotlonal processes handlAd by HR
-Clty-wlde Employee Assistance Program
County sponsored CISO program
'-~
Clearwater Fire & Rescue Department Strengths
AdmJnlltratlon
Strong City Manager support
Fire Chief Is well regarded by Fire personnel
Fire Department starr responsive and friendly
Dedicated administrative personnel
Weekly staff meetings
Several Chief Officers are EFO graduates
ApparatuI
'. MlliPpparatu, meets curren.t standards _
~scue apparatus well suited for purpose
Excellent rescue squad vehicle
Required ladder testing completed
Annual pump testing conducted
EMS
Well operated County-wide EMS system
Paramedics dedicated to service
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Emergency Management
Administered by the fire department
Some employees already trained
Excellent EOC facility
City emergency plan fully developed
Emergency planning exercises conducted
Equipment
State.of-the-art SeBA test equipment
Individual SCBA face masks Issued
Common hand tools are available
Excellent water craft available
Dive equipment good and well maintained
Good exercise equipment in stations
Fire hose tested annually
Facilities
Most fire statipns fully fire sprinklered
Kitchens have hood extinguishing systems
Good auxiliary power generators
Most fire station locations are appropriate
Fire Marshal
Effective arsen Investigation methods
(fire marshal + PD officer)
Excellent public education program
Dedicated personnel
Good Inspector productivity
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Incident Command System
Excellent county.wlde dIspatch system
Mature, fully functlonallC system
Personnel accountability system In place
County-wide mutuaVautomatic aid system
Internal Communications
VIdeotaped cable TV broadcasts
Organizational Development Team in place
Non.f:mergency Services
Pro-active water safety program
Public fire safety education program
Safety Village facUlty
SOP'I
Tradition of SOP's being observed
New SOP's being developed
Staffing
Dedicated, well trained personnel
Rescue units adequately staffed
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Standards Compliance
Safety officer designated
Most apparatus NFPA compliant
TraIning
Versatile, well-\ocated training facUlty
TraIning Chief qualifiGd and enthusiastic
Unclassified
Union retationship Is positive and productive
Union participates In 00 team
Good working relafionshlp wUh Coast Guard
Good relations with law enforcement units
Good specialized rescue teams
Good organizational development services
Free smoke detector program
Explorer Post program
G
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Clearwater Fire & Releu. Departm.nt Managem.nt Study
. . ~"....
Clearwater Fire & Rescue Department Opportunities
AdmlnlltratJon
Sorno functions need more coordInation
Command staff development neede<f
Additional cferical suppor1 needed
Number of Chief Officers too large
Command staff capability can be expanded
Command structure can enhance operations
Functional accountability can be Improved
Customer-friendly support functIons needed
.. ~
Apparatus vf'....~
Station 50 brush unit unsafL. 0
Several fire units need to be updated
Need scheduled apparatus replacement
Need a larger apparatus repair facility
Need to computerize repair records
Need a preventive maintenance program
EMS
Paramedic rotation system needed
Number of paramedics needs to be increased
Salary categories need to be reviewed
Improve the quality assurance program
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Emergency Management
Focus can be improved via reassignment
Equipment
Computer required for SCBA testing
Replacement program for SCBA needed
Hose replacament program needed
Facilities
Station 50 not fire sprinkle red
Diesel fuel should be available to Station 46
Need facility Inspections for code compliance
Station Iocaoon can be improved
Station exhaust venting needed
Blo-hazard decontamination facilities needed
Tum-out decontamination facUlties needed
SCBA cleaning facilities needed
Improve fire station housekeeping
Fire Marshal
Improve customer service: one-stop-shop
Need computerized record management
Need a full.time clerical posltlon
Need a fire protection engineer
Fire Marahal (continued)
Assistant Fire Marshal can be reassigned
Emerg. Mgmt function should be reassigned
Inspectors should have computers
Inspectors need cell phones
A home Inspection program will be beneficial
Customer service can be improved
Human Resource Management
Regular employee recognition needed
Need recruiting plan to Improve diversity
Need to Improve educational oppor1unltles
Consistency In promotional processes
Incident Command System
Not fully utilized at all appropriate Incidents
Personnel accountability system not used
Intomal Communications
Departmental newsletter needed
Need Increased Chief Officer station visits
Cable TV system needs to be fully utilized
Non.EmBrgency Servlcos
Need Public Information Officer on staff
SOP's
SOP's need to be upgraded to SOO's
Employee Input needed In SOG process
Staffing
Beach area staffing needs to be Increased
'Ladder truck functions need to be provided
Slaffiog needs to be realigned be
'Promotion vacancle!; need to filled
Standardl Compliance
Review FLSA compliance re: training hours
SCBA maintenance needs Improvement
Fire attack procedures need to be updated
Health & safety standards need review
Training
Physical fitness program Is needed
Hands-on training program needed
Training mcllity needs updating
Pre.fire planning needed
Uncll"lfIed
More community Involvement needed
Fire stations need to be active in schools
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Human Resource Management
Remove 72-hour time-trade restriction
Select employee of the month
Develop an annual awards banquet
Implement a diversity-recruiting plan
CrllnNltlr Fire & R.ICUI Dlp.rtmant Manag.ment Study
Clearwater Fire & Rescue Department Recommendations
Admlnlltratlon . / / Fire Mllr'lhll
.BJlmlnate District Chiefs ~ V Eliminate Assistant Fire Marshal
1VJd six Captains Hire a graduate Fire Protection Engineer
Add three Deputy Ctl!efs Relocate FM office and Inspectors to MSB
Reschedule Deputy Chiefs Start 8 voluntary home InspectJon program
Restructure fire administration Acquire record management software
Phasc-out the Administrative Support position Add a fun-time clerical position
Locate all Chief Officers at fire administration Provide Inspectors wfth computers
Provide Inspectors with cell phones
Apparatua
Immed!ately dispose of Station 50 brush unit
Acquire a fire/EMS vehIcle for Sand Key
Develop an apparatus replacement schedule
Replace the following as soon as possIble:
E47. ESD, R4S,R49,R50
EMS
Develop a paramedic rotation system
Require paramedIc certification (new hires)
Hire a civilian EMS tralnlnglQA coordinator
Implement strong quality assurance
Emergency Management
Assign responslblllty to a Deputy Chief
Hire an emergency management coordinator
Provide a clerical position
Equipment
Purchase a computer for SCBA testing
Conduct annual SCBA tests
Require daily SCBA checks
Implement replacement cycles for equipment
Facnltles
Place a station (2 personnel) on Sand Ka)l-op
-fsrace a new station at Highland & Logan
Shift water rescue hardware to Sand Key
Provide diesel fuel for apparatus on beach
Install fire sprinklers at Station 50
Relocate/replace stations: 45, 46, 49
Renovate stations: 47, 48,50
Provide blo-hazard decon facilities
Provide SCBA cleaning facilities
Provide tum-out cleaning facilities
Provide Individual apparatus exhaust venting
Conduct periodic fire station inspections
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Incident Command System
Provide Incident command training
Provide accountability system training
Internal Communlcatlonl
Develop an intemalnewsletter
Provide employee Involvement In decisions
Provide feedback loop for employee input
Broadcast live Interactive Chiefs program
Fire Chief make weekly station visits
Non-Emergency Services
Have fire station crews visit schools
Become active In neighborhood associations
SOP',
Conduct annual SOP review by employees
Staffing
Establish minimum duty staffing by position .
Maintain Une staffing when creating positions
Standards Compliance
Assure FLSA compliance In all functions
Provide training on hostile worX environment
Establish minimum fireground staffing
Enhance SCBA maintenance
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CI..rwatlr,Flre & RtSCUI Department Man.gement 8tudy
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Clearwater Fire & Rescue Department Recommendations
(continued)
, .
Training
Provide a part-time clerica! pOslUon
Provide Chief Officers Interpersonal training
Provide career development trainIng
Provide 8upervlsoiY traIning
Provide leadership traIning
Use IAFFIIAFC Wellness/Fltness Initiative
. Update training facility ,
Develop pre.fire plans for target hazards
Uncl.a.med
Hire a clvlllsn Public InformatJon Officer
. Develop a citizens' fire academy.
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CI'lrwlt.r Fire & Rncue Department Management Study
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FIRE DEPARTMENT ADMINISTRATION
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Background
The Clearwatar Fire & Rescue Department fs organized along traditional lInes. Administrative
functions Include budget and payroll accounting, apparatus maintenance} inventory and supplies,
emergency management, fire marshal, training, fire operations, and EMS operations, along with
minImal clarlca1 support. There are currently five Chief Officers working a forty-hour week: Fire
Chief, Assistant Fire Chief, EMS Deputy Chief, Operations Deputy Chief, and the Training Deputy
Chief. The Fire Marshal and the Administrative Support Manager (civilian position) complete the
administrative team. Previously the Fire Marshal served as the Emergency Management
Coordinator. With the Fire Marshal position vacant due to retiremant, an opportunity exists to re-
evaluate that assignment
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The current table of organization may be found on the next page.
Strengths
The many strengths of the Clearwater Fire & Rescue Department's adminIstration begin in the
office of the City Manager. With strong City Manager support, the Fire Department is clearly
headed for improvement. The selection of an internal candidate as Fife Chief signals the
beginning of a new era in fire administration. Fire Chief Rowland Herald is well regarded by all fire
personnel. They have high expectations for his success - a trust that Chief Herald fully
recognizes. The administrative staff is dedicated to service. and responds positively to requests
for service or information. Several of the Chief Officers are graduates of the National Fire
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Academy Executive Fire Officer program, which Is nationally the best training available for fire
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Fire admInistration has taken on a new persona under Chief Herald's dIrection. There are weekly
staff meetings to coordinate activltles. and an Organizational Development Team to address
Important Issues. this 00 Team meets periodically to develop solutions to matters which need
Input from all levels of the Department. There Is a team-wor1< atmosphere which Is very conducive
to the current focus of the administrators. I.e.: expanding the all-nazard prevenUve services of the
Department. this concept of customer service Involves the Identification of public hazards. then
the Implementation of programs to educate, Inform, and train the public to avoid those hazards.
Chief Herald Is quite proactive In reaching out to the community in this manner.
Opportunities
The primary opportunity for fire administration lies In the area of functional accountability. In one
area. line operation supervision. there are six District Chiefs providing a function that can be better
accomplished by the scheduling of an administrative Deputy. The District Chiefs are in a position
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between administration and the line personnel, with too little administrative exposure due to their
work. shift, which is the same as the Firefighters. The District Chiefs are currently holding an
election to detennine if they wlll seek to be represented by the Firefighters Union; that outcome
could be disadvantageous for the City. The overall command structure does not lend itself to the
development of administrative skills, which therefore Inhibits the selection of future Fire
Department leaders. The structure of fire administration can be modified to address all of these
issues.
In addition, there is no officer rank which is responsIble for each fire station and its apparatus.
The rank structure of having one lieutenant or. each shlft.!s fine for daily supervision; however, It
leaves undone the task of overall accountability. The rank structure needs a position on which to
place this significant responsibility.
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Clearwater Fire & R.lcul Departm.nt Manag.m.nt Study
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In other areas, the record.keeplng functiona of the maintenance shop and the Inventoryflupplles
operation are In need of ImprovemenL All records are manually maintained In paper form. and In
some cases no records are kept. There is an absence of computer hardware or software
dedicated to these activities. leading to an absence of centrel over maintenance, Inventory, and
distribution. These areas need addltlonal oversight to produce better records and to elevate the
levels of servIce provided to the customers, which In this case Is the Fire Department Itself.
Recommendations
The CleafWater Fire administration Is a classic case of "Too many ChIefs, not enough Indians",
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There are a total of eleven Chief Officers, six operating on the Firefighters' shift schedule; this
schedule Is totally non-productive for administrative functions, The consultants recommend a
restructuring of the rank structure as follows:
Replace the District Chief rank with that of Captain
Assign a Captain to each fire station (two per shift)
_Add three Deputy Chiefs .
Restructure tire administration responsibilities
Locate all Chief Officers at fire administration
When the Administrative Support position becomes vacant, eliminate the posit:lon
Hire three Firefighters to fill vacancies created by promoting three Deputy Chiefs
The above changes arc clarified by the proposed table of organization found on page 15. .A
special note on the Administrative Support position. the Incumbent is planning to retire in the next
18 months. His presence will be very valuable in the training of the logistic!; Deputy Chief, who
will assume those duties upon the Administrative Support person's retirement.
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CI.arwater Fire & R..cu. Dtpartment Management Study
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The modified administrative stnJcture accomplishes many tasks. It first puts the responsibility for
Important functions at the proper level to maintain accountablllty. The second benefit Is that all six
Deputy ChIefs are positioned for maximum leadership development activities, which will enhance
all Fire Department operations. The third gain is In Internal convnunlcallons. With all functional
mana~ers working similar hours, planning and coordination win be dramatically Improved. The
fourth and final benefit Is that the Important function of Incident command will be assigned to a
top-Iavel position - Deputy Chief. The rotation of six Deputy Chiefs In this role will Improve the skill
level of all. This change will also maximize the number of personnel actually assigned to fire =3nd
rescue apparatus. The overall result of the consultants' recommendations is a significant
Improvement In the staffing of apparatus with essentially the same number of personnel; the
staffing topic will be covered in a later section.
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The following two pages contain:
Proposed table of organization
Proposed Deputy Chief schedule
In this scheduling scenario, Deputy Chiefs are exempt employees who will work 192 or 216 hours
in a 28-day cycle. Their administrative duties, and exempt status, preclude any FLSA violation.
The actual work schedule, while being longer than the average work~week. is one which has
several benefits. The most notable advantage is that the Deputy Chiefs will only work Friday.
Saturday. and Sunday when they have the 24-hour dl!ty rotation. The benefit to the Department
is that all Deputy Chiefs will be working together during the Monday through Thursday work-week.
thereby improving communlcatlon and coordination. This schedule accommodates the Important
administrative functions. provides far Incident command as needed. and improves employee
development for Mure leadership roles.
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EMERGENCY MANAGEMENT
Strengths
Emergency Management, sometimes called Emergency Preparedness. Is an Important function
for every community. especially when the City Is located In a geographic area which Is subject to
'natural disasters. such 8S hurricanes. Clearwater has taken some significant steps In this arena:
Placing the function In the Fire Department; development of a nationally-recognized emergency
plan. and the construction of a fully functional Emergency Operating Center In the police facility
are all strengths of the Clearwater program. As with any plan, optimal results can only be realized
v.-"hen the plan Is utilized. Clearwater regularfy conducts exercises to test the plan. and to remind
its participants of its Importance.
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Opportunities
Until the recent retirement of the Fire Marshal. emergency management was assigned to that
Individual and office. Wlile that dual-role assignment may have been expedient at the time it was
made. it does not attach appropriate significance to either function. Emergency management
operations need, to be conducted by qualified specialists who understand multi-agency
coordination and know the Federal requirements. This staffing Is mcst critical in the aftermath of a
disaster, when Federal assistance. is completely dependant on proper procedures being followed.
The need for Clearwater Is to assign the emergency management, activity within the Fire
Department to a Chief Officer. and provide that person with adequate and qualified staff to enable
him or her to fulfill the required duties.
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, CI.lrwlt.r Fire & Rllcu. Dep.rtment Man.gamlnt Study
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Recommendations
The Emergency Management function should be the highest priority for change In the Clearwater
Fire & Rescue Department The recommendations Are:
Place the responsibility under a Doputy Chief
Hire a trained emergency management specialist
Hire a secretary. to be shared by all Deputy Chiefs
It Is the consultants' understanding that Federal funds are available to offset 50% of the costs
Involved In this emergency management function. One of the roles of this office Is to seek out
other avenues of funding which may be' available for emergency management and/or Fire
Department services. Emergency management training Is available In many four-year degree
programs around' the country. It Is further recommended that the specialist that Is employed
possess a Bachelor's degree in this field.
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CI.arwater Flrt & RtICUI Dtpertment Manag.m.nt Study
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HUMAN RESOURCE MANAGEMENT
Strengths
ThIs area of administration Is a strong positive for the Fire Department primarily due to the
availability of City-wide Human Resources (HR) aervlces. Tho employee focus groups did not
show major dissatisfaction with HR policies. except in some historic situations which seem not to
be applicable today. One of the major strengths are the Clty~wide disciplinary guidelines, which
have recently been updated. This practice of providing disciplinary parameters is an excellent
approach to a difficult topic. The consultants also reviewed the disciplinary-action history of the
Fire Department. The records are very thorough, spanning many years. There has been a
history of corrective measures taken. It Is Interesting that very few Instances of suspensions
without pay have been necessary. Sometimes this fact Is an indicator that discipline Is weak:
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1_) however, the consultants donot feel that Is the case in the Fire Department. Taken in the
complete context, it appears that the disciplinary process has been thoroughly used and
completely documented.
An area of HR management that did bring out some employee comments is the promotional
processes that have been used in the past. The good news is that the City's HR Department is
now handling that process, and has on staff qualified personnel to generate appropriate selection
.
process instruments. It Is the consultants' recommendation that the Fire Departmenfs role in any
testing be limited to selVing as a resource to the HR Department regarding source material and
skills to be tested. This recommendation does riot originate due to any specific Issue: rather it is
the most desirable and objective way for the Fire Department to operate.
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Clearwat.r FIr. & Rescu. Department Mln.".mlnt Study
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Two additional strengths that the consultants Identified Is tho presence of 8 City-wide Employee
Assistance Program (EAP), and a County-operated CritJcal Incident Stress Debriefing (CIS D)
te~m, WIlle many fire departments, and firefighters, r.onalder themselves to be Invincible.
experience has shown that firefighters suffer the same emotional and physical trauma 8S
everyone else. It Is tho training of firefighters that teaches them to maintain a calmness in the
face of disaster; that stolo nature can breakdown on occasion, necessitating the assistance 01 an
'EAP or a erSD. The Fire Department has those services available. The use of EAP and elso
should be encouraged by fire administration when appropriate.
Opportunities
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One item that seems to be missing In the Clearwater Fire & Rescue Department Is any form of
regular employee recognition. The Department does participate with a few outside agencies who
annually recognize a Fire OePartment employee, but there Is no Intemally.generated recognition.
The Fire Chief, and all the Chief Officers, should look for ways to Identify an employee, or an
employee group, for recognition when circumstances permit
Another area of opportunity Is tn the topic of employee diversity. The Fire Department needs \0
develop a plan of minority recruiting which can be utilized to Improve the Department's workforce
diversity. There Is adequate talent available in the City, and in the Rre Department. to develop an
effective recruiting program. There Is also a need to enhance the educational opportunities for all
.
Fire Department members. The consultants realize that some employees will not avail
themselves of educational opportunities; however, the "system" should not have built-in
limitations. Employee education should be encouraged In every way possible.
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Cloarwater Fire & R.leu. Department Management Study
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Recommendations
To enhance employee recognition, the Fire Department needs to de'/elop a standard by which
employee contributions are acknowledged. One way this can be done Is for the Chief Officers to
select an Employee of the Month. this selection should be made from nominees who have
shown some special talent or outstanding results during the preceding month. Obviously, in this
scenario, a Chief Officer would not be eligible for this recognition. There should also be some
form of Fire Chief award, such as an Outstanding Achievement Citation and a Unit
Commendation. These mechanIsms should be used regularly as circumstances present
themselves. Another area of recognition that should be developed Is an annual awards banquet.
Many fire departments have used this tool to both recognize its own members and to Involve the
public with the fire departmanl These awards ceremonies are always met with enthusIasm, and
would be an encouragemerlt to the entire Fire Department The best example of this process
,.. , . ; known to the consultants Is the Fort Worth, Texas Fire Department. The Fort Worth Fire Chief.
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Larry McMillen, can provide further lnfonnation (telephone 817-871-8801). When property
planned and organized, the cost to the Fire Department is minimal.
Another recommendation is that that the Fire Department develop a written plan to improve
diversity recruiting. Many strong examples exist; in addition, the City's HR Department can
provide a valuable resource. It. is Imperative that the Fire Department operate this program - it is
also very useful to utilize minority members of the Department In this Pro<::ess. The Fire
Department does have a need to hire Florida-certified Firefighter/Paramedics; however, the
minority recruiting can be enhanced within that limitation.
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el'lrwlter Fire & ReacuI Deplrtment Mlneg.m.nt Study
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In order to Improve education possibilities for Its employaes, the Fire Department should remove
the 72-hour per year exchange.of-t1me restrlcUon that currently exists, It Is the consultants'
perspective that trades-of-tIme are self-regulating: I.e., the employees themselves wlll not tolerate
abuse or excess. Any activity that can be self-policed Is an advantage to the Department. Of
necessity, the Department should maintain controls which would not permit trades whIch would
Interfere with Departmental trainIng or to engage In outside employment. Along with this relaxed
regulation, the practice of permittJng day-time television hours (or nap time) should be eliminated.
A prtHlctive fire department does not have enough time In the work day; to further reduce it with
lhese time-wasters Is unacceptable in teday's world.
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Cf..rwlt.r Fire & Rllcu. Dlplrtm.nt Mln.g.mtnt Study
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INTERNAL COMMUNICATIONS
Strengths
Internal communication Is extremely Important for any organization. The Fire Depa~ent has two
systems In place which are assets to Improving employee partlclpaUon: the cable access channel
and the Organizational Development Team, These widely divergent assets are curremly
functional; however, their utlllzaUon can be Improved.
Opportunities
While the above tools are good, some additional measures are readily aval/able and will prove
Invaluable. The Fire Department needs to Implement a monthly nl!Ylsletter, with a copy dIstributed
to each employee. The second, and most important, opportunity is for the Fire Chief to develop a
.'-.....
~J face-ta-face rapport with all personnel. The third opportunity Is to expand the use of the cable
access channel, to more fully uUlize its potential.
Recommendations
The consultants realize that the present clerical staff Is too small to accomplish the production of a
Departmental newsletter, recommendations In other sections of this report will address additional
support staff. This newsletter should provide for emplo~ee submittals, such as items for saJe,
,
addiUons to families, etc. It should also contain a feature article from the F,ire Chief, and updates
from the major divisions (EMS, Fire Marshal, etc.). Computer software, such as Adobe
~agemaker, and even some word-processing programs, make it very easy to generate an Intemal
newsletter.
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CI.arwltor Fire & R.lcu. Department Manauem.nt Study
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The Chief needs to utilize the MBWA philosophy (management by walking around) as described
by wrlte'r Tom Peters. Regular station visits need to be an Integral part of the Chlers schedule.
and should be conducted In 8uch a way that each emplo,ee will have access to the Chief. The
cable access channel provides an additional communlcaUona medium. Tho consultants
recommend that a monthly, live, lnter.actlve broadcast be made by the Fire Chief, providing for
telephone calJ-in from the fire ltatlons. In addltJan, this live broadcast feature can be used for
Incident critiques and other matters of Interest to the Department. The capability for these
broadcasts may have to be developed; however. the current use of a cIosed-clrcult TV system
leads the consultants to believe that this avenue of communications may be available.
The Organizational Development Team Is a concept that can be enhanced. The composition of
this Team must be carefully selected to provide broad representation in its deliberations. Another
recommendation Is for the Fire Chief to reconstitute the Apparatus Committee. The consultants
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encountered numerous comments which led to the belief that that committee Is dysfunctional as
presp.ntly staffed.
The Fire Chief should also provide for some written form of feedback from the employees. The
term oIfeedbackM implies an opportunity for un-debated constructive comment. The consultants do
not recommend anonymous feedback; however, a system should be in place for the employees to
submit suggestions to the Fire Chie::f. These recommendations are only the beginning of internal
communications. As new approaches are ta~en. additional avenues of, enhanced
communications will become apparent
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Clelrw.", Fire & R..cuI D.partmlnt Mlnagement Study
STANDARDS COMPLIANCE
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Strengths
The fire service has .een an alphabet-soup prollferatlon of standards In recent years. Those
Include NFPA, FLSA. OSHA, NfOSH, ADA. EeOC and others. These standards address
'everythlng from protective clothing to hours of workt and Include fire apparatus design und criteria
for other equipment. The Clearwater Fire & Rescue Department has made efforts to comply with
these standards, and In some cases have been successful. An example is found In the fire
apparntus. The Department's apparatus is mostly in compliance with applicable NFPA standards.
There is an absence of some small tools; however, the consultants do not find that situation to be
unusual. Another excellent compliance is the designation of the Training Chief as Departmental
Safety Officer. NFPA Standard 1500, and others, requires that position be created, and utilized.
This officer serves a vital function at fire emergencies, and other incidents which pose a risk to
firefighters.
Opportunities
The consultants found an Interesting method of handling some training hours. FLSA regulations
provide Olat an employer shall not "cause or sllow" employees to work overtime without time-and-
one-half compensation. The conflict Is that Ulere are quite a number of Fire Department
employees who willingly volunteer their time for various functions. It Is unfol1unate but true that
the FlSA law has a strong negative impact on employee volunteerism. The Fire Department
needs to revisit these regulations to assure compliance. In addition, the Safety Officer needs to
be fully utilized on all major Incidents.
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The consultants are heavily focussed on fireflghter safety. One main area of concern Is In self..
contained broathlng apparatus (SCBA) maintenance. The consultants found that adequate
records are being kept; however; the actual maintenance scheduling does not meet current
standards. SCBA units need to be tested annually, wIth a record maintained on the performance
of each unit The Fire Department has state-of.the-art test equipment; however, It Is not utilized
due to the tack of 8 computer which Is 8 required component.
Another area needing Improvement Is the Fire Department's procedures regarding fire fighting
operations. Current standards rflqulre at least four persons on-scene before an Interlor attack Is
started: there Is no written Fire Department document that establishes this criteria. In addition,
OSHA has new regulations on the use of breathing apparatus which take effect September 9.
1998 which will have a direct impact on Items such as annual physicals, the need for a
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Depart;nental physician, etc. The Fire Department needs to ~come famlliar with, and comply
with. these various health and safety standards. Some additional attention should be directed to
!
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the EEOC regulations regarding sexual harassment
Recommendations
Our recommendation is short: Comply with the standards. The Fire Department needs to
carefully review Its FLSA procedures. Some attention is also needed In the area of monitoring the
fire station work environment The consultants did not find any overt problems, othQr than some
undesirable language; however, when viewed from the -hostile work environmenr perspective,
some Improvement is needed. It must be remembered that harassment Is In the eye of the victim.
and that the victim can be male or female. Care must be taken to avoid the use of offensive
,.)
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language, gra~hics, and/or other non-professional demeanor. It is recommended that a training
program be presented to all employees on sexual harassment; and that, such a program be
provided by a specialist from outside the Fire Department There are numerous zero- or low-cost
resources available which should be utilized.
26
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CIIarwlt.r FIN & R..cu. Dtpartm.nt Man.g.m.nt Study
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The Fire Department need. to establish minimum fire fighting standards. and then assure
compliance via the Incident command procedures. The same la true In regard to SCBA
I
maintenance and YH. as well as other safety standards. The Fire Department has sorne
catching-up to do In the area of these standards. Using the restructured fire administration
,
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concept. adequate leadership positions should ~ available for the oversight of these Important
functions.
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TRAINING
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elf.rwat., Ffrt & R..cuI Deptrtmtnt Manag.m.nt Study
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Strengths
The training topic Is Included In the Administrative section due to its crttlcal nature In fire
department operations. Most fire service authorities agree that training Is one of the most
. Important non-emergency functions of the fire department The Clearwater Fire & Rescue
Department Is strong In the area of training. The training facility Is good, and centrally located to
facilitate Its use. The Training Chief Is dedicated and qualified; the training records meet
contemporary $tandards.
Opportunities
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The Fire Departmenfs training needs can be summarized in two areas: programs and
infrastructure. In regard to programs, the Department needs more hands-on.training. Currently
much of the training Is done via videotape. Unless carefully monitored, and scheduled judiciously,
these video training sessions can become additional nap time for employees. Fire fighting is a
physical activity. and needs physical involvement for the training to be effective. There Is also a
need for multiple-unit drills, as well as training with surrounding departments who routinely
respond with Clearwater. Other training needs will be outlined in the Recommendations section.
o
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The training facility, while being very useful, needs to be updated. An additional classroom heads
the list, closely followed by the need to abandon the fuel burning pits. The soil beneath these pits
will have to be tested for contaminants, then replaced as necessary. It is recommended that the
Fire Department cease bumlng of any kind; smoke training can be accomplished with
commercially available smoke.generators. The Department does need a smoke maze for
training, as well as a structural engineer's Inspection of the main training tower.
2B
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CI.arwat.r Fire & R..cuI D'plrtm.nt Mlnag.mlnt Study
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Another traIning opportunity exists tn the area of pre-ftre planning. ThIs process Involves the tire
units visiting the site of major structures and target hazards to establish an action plan ~ the
ftre. This process Is beneficial to the property owner to minimize losses, and to the Fire
Department as advance Information regarding an occupancy's hazards.
Recommendations
The consultants recommend the following addItions to the training program:
Officer development
Interpersonal skill training
Supervisory training
Leadership training
Physical fitness program (use the IAFFIIAFC Wenness - Fitness Initiative)
. ,."
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The above traIning topics are readily available at little or no cost from educational In stitutlo r.s and
other sources. The IAFFIIAFC program is the defacto physical fitness standard for the fire
service. JoinUy developed by the Firefighters Union and the Fire Chiefs, it is an excellent program
which Is avaUable at no cost The NFPA standard also mirrors this program. No fire department
should be without this program as its basis for wellnesslfitness.
The training facllity needs some attention. The first priority Is to have a structural engineer inspect
the building and report on its Integrity. Secondly, the fuel pits need to be excavated, soil tested,
and filled.Jn for other use. This process may provide an opportunity to Install a cor.fined-space
.
training area and smoke maze - Tempe, Arizona has an excell~nt one which can serve as a
model (contact Fire Chief Cliff Jones, telephone 602-350-8037). An additional classroom. larDer
than the existing one, needs to be constructed. The location of the training facility Is good, and
should be maintained, along with Fire Station 48. A cost estimate for these Improvements will be
shown under the Facilities section.
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29
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The consultants recommend that Department personnel be trained In the preparaUon of pre-fire
plans. and that a comprehensive program of advance planning be Implemented. this acUvity hat
numerous benefits to both the Fire Department and the buslneu community. Specifics regarding
the pre-fire planning process are available In several fire service publications. In addition. the
local ISO offtce may be able, to provide assistance with accurate ftoor plans of various
occupancies.
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Clearwater Fire & Re.cue D.partment Managem.nt Study
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UNCLASSIFIED ITEMS
Strengths
In every studyt a number of Items develop which are outsIde the reporfs classifications; this
section Includes those Items. The most Important topic Is the relationship of fire administration
with the Firefighters Union leadership. The consultants were Impressed with the strong positive
nature of their Interaction. Any fire department seeking excellence must have a positive labor-
rTUloagement relationship; Clearwater has that foundation from which to build toward the 2111
century. The Joint particlpution In the Organizational Development Team Is further evidence of a
cooperative environment The Fire Department also enjoys good relations with other City
departments and outside agencies. The U. S. Coast Guard station In Clearwater is a valuable
asset; that relationship Is also strongly positive. The Explorer Post in the Fire Department is also
" .
,.~ an important effort that is functioning well. The Fire Department has done a good job in working
with others. Another area of strength is the long-standing existence of rules and regulations
addressing Fire Department standards (SOP's).
OpportunIties
The consultants recognize a need for the Fire Department to be more active in the community.
This need has also been recognized. and voiced, by many members of the Department, including
the leadership. The. Department also needs to have more Involvement with the schools, and with
neIghborhood associations. The Fire Deparbnent has tremendous personnel resources and
talent; those skills should be directed to all citizens in a variety of ways. An opportunity In a
dIfferent area are the SOP's. Legal precedents dictate that the fire departments have Standard
OperatIng Guidelines (SOG's) Instead of SOP's; these documents need to be updated.
"~
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31
Cfelrwlter FIre & RtlCUI D.partm.rat Manag.m.nt 8tuet;
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Rocommendatlons
The Fire Department desperately needs a Public Information Officer. It Is recommended that "ds
person have 8 news media or journalism background. and that the poSition be non-unlfonned.
this person should report dlrecUy to the Fire Chief. and can be assigned various public
information and public educatlon duties. This PIC can also be utilized for Intra-departmental
communications via the cable access channel. The utilization posslblllUes are endless, dependent
only on one's Imagination; many fire departments have had great success with mobile fire safety
units and standardized slide presentations. The benefits to the City and to the Fire Department
are substantlal, with Improved citizen Information being at the forefront.
A second recommendation is for the Fire Department to initiate a Citizen's Fire Academy. Thl!:.
concept involves a multi-week training program for Interested citizens, The actual program can be
tailored to local needs; it would contain as a minimum familiarization with Fire Department
procedures and equipment The graduates of a Citizens Fire Academy frequenUy constitute a
cadre of volunteers who may be willing to serve In minor administrative capacities. such as
telephone answering, filing, etc. This concept Is another mechanism of public outreach which
returns much more than Its nominal cost The program already planned by the Fire Department,
the Community Emergency Response Team (CERT) is simflar in nature, and will serve many of
the same purposes, as well as enhancing disaster preparedness and mitigation.
The final recommendation is In regard to SOP's. These Important docun'lents need to be "!lOOified
In content and In title (SOG's) within a short time-frame, and then must be reviewed annually by
an employee committee. The internal workings of the Department and employee morale are
Impacted by these regulations.
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This segment concludes the Administration section.
32
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Clearwater FI... & Relcue Department Mlnlgemenl8tudy
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FIRE STATION CONDITIONS
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Background
The Clearwater Fire & Rescue Department has provided services from six fire stations for more
than 20 years. The good news is that those station locations are reasonably good. The bad news
Is that the fire stations have not had any appreciable effort devoted to modernization. The result
Is a number of facilities badly In need of major renovation andlor replacement. This section will
address the fire station facilities physical condition. The following section will discuss fire station
locations for optimum protection.
Strengths
The positive aspects of Clearwater fire station facilities lie In location and some equipment The
.,-.
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locations of all stations are reasonably good, although some minor improvements could be made
by relocation. That topic will be thoroughly discussed in the next section. In regard to equipment,
five of the fire stations are equipped with automatic fire sprinklers; only Station 50 does not have
this equipment. Each fire station has a modem commercial cooking stove, with a full hood
extinguishing system. The emergency power generator In each facility seems to be adequate.
The Inadequacies appear after the above items.
Opportunities
All six fire stations are in need of serious renovation or replacement There are Inadequate
facilities for almost every function related to 24-hour emergency service. Dormitories and
restrooms do not accommodate the privacy considerations that are necessary fur male and
female fire fighters, nor do they meet ADA requIrements. There Is a complete absence of blo-
'.
, ~ hazard and protective clothing decontamination. There Is no appropriate place for routine
\... cleaning of SCBA face-masks.
33
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CI.arwlt.r Fire & Rtlcu. ~p.~.nt Manag.ment Study
'/'')
The station a' truck~nglne exhaust equipment needs to be replaced. There II no routine
Inspection to ensure adequate upkeep. Station 46 has no diesel fuel available except by leaving
the Beach area, and finally, Station 60 has no fire sprinkJers.
Recommendations
(
The following stations are situated in good locations, but are in such a state of deterioration that
they should be bull-dozed and replaced with a new facility: Station 45. Station 46. Station 49.
These stations protect, respectively, downtown. the beach, and east..clearwater (Clearwater
Mall). These new stations should be built on or near their present location. A recommendation on
the priority of fire station construction/renovation appears In Appendix B.
of $300,000 to property refurbish each of these faclllties. These three stations are almost Identical
In desIgn. It is recommended that an architect who is familiar with fire station standards be
employed to design the renovation for all three facilities. In the process of remodeling, Station 50
will need to have fire sprinklers installed. The consultants understand that Fire Chief Herald has
made arrangements for diesel fuel to be available at the Beach station (46); however, that item is
included as part of our recommendations If it Is not ~dy accomplished. Please see Appendix
, B for cost estimates and suggested scheduling for fire station construction. The consultants
understand that many ancillary consid~ratlons will Impact this scheduling; however, the need Is
critical. This reconstruction process should begin at the earliest possible date.
!t...)
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34
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elo.lWlter FIN & R..cu. Department Mlnagem.nt Study
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FIRE STATION LOCATIONS
Background
The Clearwater Fire & Rescue Department has provided reasonable response time protection to 8
large segment of the City, operating from six fire stations. Renponse times to approximately 75%
of the City are at five minutes or less. The Plnellss County fire dispatching system, and
accompanying mutual aid/automatic aid agreement, provides that the response to any location be
from the nearest fire station. regardless of political jurisdIction boundaries. This Is a good system,
one which is a medel for many similar systems throughout the country.
One area that has no reasonabte response coverage Is the Sand Key segment of the Clearwater
, i
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Beach. The number of calls for service in this area Is relatively small; however, the risks are
significant, especially when Beach access Is frequently blocked by traffic gridlock. . The majority of
calls for service are medical in nature. The high-rise residential structures create an extra
"vertical response time" which, when added to the road time, makes the overall response time
unsatisfactory .
There Is also a segment In north-central Clearwater which entails long response times from the
nearest Clearwater station. There are fire stations In other jurisdictions (Dunedin and Safety .
Harbor) that respond, but the Clearwater travel distance Is too long fOT quaiity service.
Strengths
'\..J.
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The main strength of Clearwater fire stations Is their location. While their condition Is less than
desirable, the locations for the six stations Is appropriate, when supplemented by two additional
facilities.
35
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, cllarw.i., 'FI~1 & RncuI D'P.rtm.~t' ~~~~~.m.nt Stud)'
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Opportunities
Clearwater has a distinct opportunity to provide excellence In fire and medical emergency service.
by adding two fire stations. One of these can be done with current stamng levels, The actual
locations will be discussed In the next paragraphs. Staffing will be detailed In later sections of this
report.
Recommendations
The consultants recommend that two additional fire stations be constructed, one In 1999 (Sand
Key), and one In the year 2000 ( Highland & Logan), These statlons have bean assigned the
numbers 51 and 52 by the consultants. l'he actual identifying number may vary according to tho
County system. This recommendation is based upon the response time from current fire station
locations.
(~
The- consultantst computer software utilizes the Insurance Services Office (ISO) travel time
algorithm. This software calculates the travel time of fire apparatus based upon thousands of
samples of data. Since the same model is utilized by the ISO, the results will be in keeping with
their standards. Shown in Appendix C-1 is a schematic of Clearwater with six fire stations - the
present configuration. It can be seen that a large coverage gap exists in the Sand Key area and
the north central downtown area. Our recommendation is to service these areas with new
facilities, The consultants have agreE!d to teach Fire Department personn'el the operation of the
computer: modeling software if it is available during the timeframe of this assignment
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36
Clearwater Fire & RHCUO D)plrtm.nt Management Study
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The decision to build snd starr a ftre et8Uon cannot rest alOOi! on volume of calls for service;
geographic considerations are at least equally Important The Sand Key ares, end the Beach In
its entirety. are frequently Isolated from outside assIstance due to traffic congestion, The
aggregate recommendations In this report will Increase Beach protectIon by 100% In response
times, and by 60% In staffing, with no Increase In total personnel.
. '-,
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In Appendix C-2, a second schemaUc shows the response results with two additional Clearwater
fire staUons. The Sand Key station does not currenUy need a full assignment of an engine and a
rescue. Our recommendation Is to purchase a rapid-response vehicle that is capable of
extinguishing small fires (cars, brush, etc.) and carries paramediC'Jrescue equipmenl This station
would be staffed by two firefighter/paramedics, and augmented as necessary by the other Beach
station. The Sand Key facility can be operated with existing personnel, assuming the
implementation of the recommended restructuring of fire administration and the staffing
recommendations which appear later In this report. It Is also recommended that all water rescue
operations be based at the Sand Key station. Other staffing Issues having a positive Impact on
fire protection on the Beach will be discussed in a later section.
The second additional station s~ould be located In the vicinity of Highland and Logan Streets.
This facility will enhance coverage in the northern part of the Citj, as well as in the downtown
area. Staffing at this' station will require the addition of 21 uniformed personnel to the Fire
Department, accompanied by an appropriate number of promoted positions.
this segment concludes the Facilities section.
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37
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FIRE APPARATUS
Background
Fire apparatus represents a large capital Investment for any community. At1 engine. or pumper,
can cost In excess of $250,000; a ladder truck as much as $500.000. It Is Important to keep In
perspective the long service life and Important functions of these apparatus when lookIng at the
cost. There Bre two types of apparatus: custom and commercial. These designations refer to the
type of cab and chassis unit that makes up the foundation of the apparatus; the pump and body
are specifically constructed on both types of units. The differences between the two are service
life and cost. as c;hown In the table below:
"
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\'--'
Apparatus Type Service Life COlt Cost per Year
Custom Chassis 15 years front.line $ 250,000 $12,500
5 years reseNe
Commercial Chassis 10 years front-line 180,000 $12.000
5 years reserve
The custom apparatus has a much heavier frame construction, enabling it to provide extended life
with reduced maintenance; these units are also somewhat larger, enabling the fire department to
cany the necessary tools and equipment For these reasons, the consultants recommend that aU
fire apparatus purchases be on custom chassis.
, .
Strengths
(~
",-
The Clearwater Fire & Rescue Departmenfs fire apparatus Is a mixture of aid l~,d new. For a
,period of 'lime in the past, new apparatus was not purchased on a regular basis. Most of
Clearwater's apparatus meets NFPA standards for the basic equipmenl The apparatus is also
tested annually aCCOrding to NFPA criteria, which is another strong positive. All current apparabJS
has passed the most recent tests.
38
-- --......'-.
Recorramendations
~~
.
.'
CI.lrwlllr FIre & RIICUI Dtplrtment MIInlgemlnt 8tudy
, /)
OpportunltJ8I
The most serious apparatus Ilsue Is the unit st Station 50 Identified SR 8 brush fire unit - that unit
Is totally unsafe, and needs to be removed from service. Following that Item, two engines are In
need of replacement ss 800n as possible. These units, assigned to Stations 47 and 50, have
gone beyond their useful service llfo. The long-term solution to these issues Is to Implement a
comprehensive apparatus replacement plan; a proposed schedule is shown In Appendix O.
The Fire Department also needs to Implement a preventive maintenance program for all
apparatus. There currently Is no viable program, due in part to an absence of computerized
records. The maintenance staff Is adequate, but their records and facility are not The Fire
Department shop needs to be rebuilt In larger size, and with modem equipment designed to
service fire apparatus. The consultants recommend keepIng fire apparatus repair as a function of
the Fire Department
."'-..,
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\
The first recommendation Is to Immediately remove the Station 50 brush fire unit from service.
There is not a need to replace this unit; Clearwater does not have a compelling need for this type
of apparatus. Secondly, replace as soon as possible the engines at Stations 47 and 50. The
consultants understand that these funds are already allocated; we recommend proceeding as
expeditiously as possible. The third recommendation Is to acquire a firelmedieal response unit for
Sand Key. This unit should be con"figured as a -mini-pumper"', with adequate compartment space
for paramedic equipment and supplies. The final recommendatico is to implement an apparatus
replacement program, with funding allocated In each fiscal year. Based upon the consultants'
analysis of the cutTent equipment, a proposed replacement schedule is provided in Appendix D.
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39
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CI..rwlter fire & R..cue' D'plrtm.nt Mln.a.~nt Study
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, 11
RESCUE APPARATUS
,
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Strengths
Over 80% of Fire Department emergency responses Is to medical emergencies. The positioning
of a rescue unit at each fire station provides excellent distribution of these resources for public
Rervlce. The consultants recommend that this pracUce be conUnued. The design of the rescue
apparatus Is also quite effective and efficient, as Is the philosophy of replacing the chassis unit
and retaining the compartment unit The Department also has an excellent heavy rescue unit
which serves a valuable purpose In the overall response picture.
Opportunities
Three of the rescue units, those assigned to Stations 45. 49, and 50, are in serious need of
. ,,-\
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,---,'
replacement These units are held over from the era of not replacing apparatus on a regular
basis. The Fire Department needs to develop a replacement schedule for rescue apparatus. The
maintenance of the units also needs to be improved, as recommended in the Fire Apparatus
section.
Recommendations
Immediately replace Rescue 45, Rescue 49, and Rescue 50. Adopt a replacement cycle similar
to the one shown In Appendix D. The rescue units WIll only have a front-tine servic&,life of six
years, and a reserve \lfe of two years. It Is recommended that a new rescue unit be purchased
every year, thereby providing quality apparatus for this important service.
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TOOLS AND EQUIPMENT
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, Strengths
The consultants have a strong perspective on fire fighter safety. A major element In that safety 18
breathing apparatus (SCBA). The Fire Department has purchased stateo()f.~e.art test equipment
for the SCBA. The Department has also Issued each employee a personal SCBA face mask; this
practice Is consistent with the procedures of the very best fire departments. Other equipment
,;
strengths Include excellent water craft and dive equipment, and very good physical training
equipment In each station. Also in compliance with nation standards. the fire hose Is tested
annually.
Opportunities
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equipment The other need Is for a replacement program for SCBA and fire hose. These items
have a predictable life of five years (SCBA) and seven years (fire hose). The SCBA units also
need to be on a five-year cycle to allow Improved technology to be provided on an economical
basis.
41 '
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cr..rwlter Fire & Rescue D'plrtm.nt Managoment 8tud~
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13,
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Recommendations '
Provide a computer for SCBA testing, The SCBA technician has asked for 8 lap.top computer
due to limited space In the mask S8Nlce area. The consultants recommend that the service area
be cleaned out to make room for a standard computer; space Is available If the clutter Is removed.
this 'computer does not have to be a 300 mhz machine - a slower model which Is being taken out
of service elsewhere will suffice. The SCBA the needs to tested annually, with comprehensive
record-keeping. This critical function needs to be assigned to a Deputy Chief to ensure
accountability. The SCBA units also require dally Inspection by on-duty personnel. Steps should
be ,taken to ensure that all appropriate Items are checked. Including the SCBA regulator
diaphragm. The final recommendation Is to Implement a replacement program as noted above.
This segment concludes the Apparatus section. "
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CI..rwatlr Fire & RltCUI Dlpartmlnt Mln.glment ltudy
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EMERGENCY SERVICES
Strengths
The Clearwater Fire & Rescue Department provides strong emergency services . It Is a good
Department. The County-wide dispatching and EMS systems serve as a model for other
jUlisdlctlons. The County fire mutual aid/automatic aid Is also state--of-the-art. A sIgnificant part of
this value Is the fully functJonallncldent command system utilized by all County fire departments.
This system, when fully utilized, ensures the best possible outcome in an emergency Incident.
, The Fire Dep~rtment also has In place a personnel accountability system, whIch Is designed to
track the location of every fire fighter on the scene of an emergency. These systems, coupled
with dedicated employees, result in very good emergency services.
...-)
'\"'~'I
Opportunities
The opportunities for improvement focus in two areas: the accountability system and paramedic
'staffing. The accountability system Implemented by the Fire Department Is consistent with
contemporary models; it is one which the consultants favor over others which are In use In some
localities. The need is for the command staff to utilize the accountability system. The consultants
were able to observe, via radio messages, several incidents which warranted accountability
procedures, yet none were In evidence. Fire Department personnel need ~ be trained In the
system, and especially In the fact that It Is purely for their own well-being.
~
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The paramedic issue is more complex. There Is presently no plan In place to address paramedic
bum-oul The Department needs to Implement a paramedic rotation system, which will require
additional paramedics. With 80% of the actJvlty beIng medical, more attention needs to be dlrec,1ed
to the future staffing of all apparatus by paramedlc-qualified personnel. There Is also an absence
of a functional Quality Assurance (QA) program.
43
l
CltllWlter Fire & RHcue D.partment Management Study
.
a .
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Rocommendatlon.
It I. recommended that all Fire Department personnel receive training In tho use of the
accountability system and Its benefits. All Incident commanders must be roqulred to utilize this
system. This Is a safety Issue, and need. Immediate attention.
The Department should also change Its hiring practices to only employ licensed paramedics. this
~
approach will probably necessitate revisiting the salary schedule; the consultants recommend that
the base salary for ' new emp10yees include paramedic compensation, and that the premium pay
for rescue assignment be phased out sa a rotation system becomes fully functional. The rotation
,
system for paramedics can be structured to accommodate skill retention and sklll usage Issues.
C)
In order to ensure appropriate EMS care and procedures, the Fire Department should hire a
person to Initiate and maintain a QA program. The County QA system Is not patient-specific;
Clearwater needs to Implement an Internal QA program. this staff position should be civilian,
should be a person who Is a licensed paramedic and has additional medical qualifications (i.e.:
graduate nurse. etc.). this position should report direcUy to the EMS Deputy Chief.
Also, on the topic of EMS, the job functions and supervisory oversight of the Rescue Lieutenants
should be closely examined to assure maximum productivity from this position.
{~
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44
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I I
Cr.arwat.r Flrt A Rttcu. Departmtnt Manag.ment Study
,~
FIRE & RESCUE APPARATUS STAFFING
L
J
Background
The Fire Department currenUy operates with a minimum duty staffing of 39 personnel. It Is
Interesting to note that the number of line personnel has declined somewhat over the years, whIle
Call volume has Increased by a magnitude of three. Of the 39 minimum personnel on duty each
day, three are supervisory positions (two District Chiefs, one Rescue Lieutenant). This command
structure' Is excessive for the number of stations, personnel, and Incidents. As we look at the
staffing of apparatus, we also find the circumstance of having too few personnel on the ladder
trucks, relegating them to the status of expensive taxicabs. This overview Is presented as the
foundation for the remaining sections on staffing.
...........
<..)
Strengths
,
The staffing strengths of the Fire Department lie in the dedication of its employees. Fire
apparatus Is minimally staffed; rescue apparatus Is proper1y staffed when two paramedics are on
board. The key to the staffing strength Is to look at the results, which are very good.
Opportunities
Some very apparent staffing needs exisl The Beach area Is frequently Inaccessible due to traffic
congestion; that staffing needs to be Increased. Valuable fire suppression support seNlces are
unavailable, due to Inadequate staffing of a ladder truck (two are In service, poorty staffed). As
previously noted, there are too many supervisors for the activity level. The opportunity Is to rectify
these situations with no increase in the minimum staffing number of 39.
,; "
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45
Clearwat.r FIN & R..cUI Departm.nt Managem.nt Study
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Recommendations
We first would address the staffing of the rescue units. Two paramedics should always respond
with these units. To accomplish this goal, additional paramedics will be necessary. Our
recommendation Is to change the hiring criteria to require paramedic certification. The next Item
of discussion Is Beach staffing. Currently there are three persons on the engine, and two
paramedics on the rescue unit In compliance with current standards, a three-person unit cannot
make an interior fire attack. this Beach engine has to rely on assistance from either the rescue
unit or another engIne from a downtown station, neither of which may be available or accessible.
The staffing on the Seach engine should never drop below four. With two paramedics on the
rescue, and two additional paramedics at the new Sand Key station, a total of eight personnel can
provide quality service, or hold the incident In check until other units can arrive.
-)
"
The two ladder truck units currently in service are really only high-priced transportation for one or
two fire fighters. It is our recommendation that only one of these units be staffed, and that one by
four personnel. We further recommend that the specific ladder truck to be fully staffed be the unit
presently assigned at Station 48. The ladder truck at Station 45 should be used as a reserve only
(this is due to its age, accident record, and a lack of confidence of the personnel In its abilities).
this staffing level will enable the assigned personnel to provide the support services which are
important to fire suppression activities.
The final recommendation Is to change the District Chief fa.nk to that of Fire Captain. and assign
one Captain to each fire station, working on the same shift as other line personnel. two on each
shift. this rank structure will provide for accountability in non-emergency matters. and provide an
on-duty command structure for emergency incidents. Incident command functions will be
provided by the duty Deputy ChIef. who may relieve the shift Incident commander upon hlslher
\-:-)
\......
arrival.
46
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CI.arwat.r Flro & Rescu. Departm.nt Man.g.m.nt 8Cudy
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Staffing should also have B mInImum established for each rank or position (paramedic, Lieutenant.
Captain). This minimum should Innuence the rank of overtime personnel whet' overtime Is
necessary. The proposed staffing of current stations and apparatus, plus the Sand Key facUity, Is
shown In the table on the next page. While our recommendations utilize the current 39 minimum
staffing, we further suggest that the minimum dally on..cfuty staffing be raised to 40 personnel,
including the Rescue Lieutenants. The additional person should be assigned to the ladder truck,
keeping that staffing at four each day.
It should be noted that the bulldlng of 8 new fire station, labeled Station 52 by the consultants, will
,necessitate the hIring of 21 additional personne\. In fire service scheduling. four and one-halt
positions are necessary for every three on..cfuty, to accommodate various forms of leave. Station
52 wl1l be staffed by three persons on the engine, and two paramedics on the rescue under this
. recommendation.
o
The Rescue Lieutenant, in addition to regular duties, should be the back-up incident commander
for the circumstance when two Clearwater fire incidents are In progress simultaneously.
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47
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C1..fWltlr Fire & Rllcu. Dtplrtment Man.glmont Study
...-) Clearwater Fire & Rescue Department Proposed Staffing
I Unit I A Shin ~: I _: B8hln C Shift ----1
Engine +i5 CtPtaln Ututtnlnt UeUlln.nt
DrfvtroOpel1ltot' DrfveroOptfl'tot DIivt1.()peralor
Flttflghter Flreftg httr Flreftghter
Truck +i5 lieutenant Ueuttn.nt UtuCenant
Oriver.()perttof Oflver.opefl'tot Olivtf.operator
Flntftghttr Flreftghler Flrtngtlttr
Resale +i5 Le.d Medic It.d Medic Lud Medic
P.ramedle Paramedic PlIllmIdlc
Engine +i6 L1euten.nt Captain Ueuten.nt
Driver.()peralor Driver .()pI1'Il<< Driver.Qpel'ltor
FlrerlQhter Firefighter FItoftghler
Firefighter Flrefigll\er Firefighter
Rescue 46 lead Medic Lead Medic Lead Medic
Pat1medle P'l'Imedlc Paramedic
Engine 47 lieutenant lieutenant c.ptaln
Drive r.()pe ""tor Driver ..()perattK DriYer.opel'ltor
Firefighter Firefighter Firefighter
Rese;ue 47 Lead Medic Lead Medic Lead Medic
Paramedic Paramedic Paramedic:
Engine 48 Captain Ueuten.nt Ueulenanl
I:) Driver-OperalCt Drtver..Qperatof Oriver~ralor
Firefighter FlrerlQhter Firefighter
Rescue ~8 Lead Medic lead Medic lead Medic
Paramadlc Paramedic Paramedic
Engine 49 Lieutenant Captain lieutenant
Drlver-Ope,..tor Oriver-Operator Drmr.()peralor
FlrerlQhter Fllllflghter Firefighter
Rescue 49 Lead Medic Lead Medic Lead Medic
ParamediC Paramedic Parwnedic
Squad 49 Driver.()peralor Oriver-Operator Driver.()peralor
Firefighter rltefighter Farafighter
Engine SO LIeutenant UeutenJnt CaptakI
Driver-Operalcr Driver-Operator Driver.()perator
F1refighter Firafighler Fireftghter
Rescue 50 Lead Medic lead Medic Lead Medic:
Paramedic Paramedic Paramedic
FlrelRescue 51 Lead Medic lead Medic Lead Medic
(Sand Key) Palllmedlc Paramedic Paramodlc
Rescue lieutenant LL JParamedic LUParamedlc U..JParamedlc
Total personnel iii 39
10 AS$lgn four personnel to the ladder truck when duty Itrength exceeds 39
...-.......
''-
48
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. .
CI.arwater FIN & RHCUt D,partm.nt Manag.ment Study
J :)
FIRE MARSHAL
l
Strengths
The Fire Marshal's office Is a productive arm of the Fire Department The now-retired Fire
Marshal leaves a legacy of S8NIee and positive results. The public education program,
augmented by the Safety Village, Is an outstanding fire safety education effort The public
contacts from that program alone, some 20,000 per year, are amazing. The results produced by
Art Brown are Impressive, and should be continued. The arson Investigation system, utilizing one
Fire Investigator and one Police Investigator, represent the very best in resource utIliz~tlon. The
productivity of the inspectors is good, especially in view of the fact that they must do their own
clerical work. Overall, the Fire Marshal's operation Is In good order.
o
Additional strengths include the free smoke detector program, which Is administered by the Fire
Marshal's office, with detectors being installed by on-<iuty crews. This program Is found In many
communities, and should be continued.
The proposed Citizen Emergency Response Team (CERT) is also a worthwhile endeavor, and
can serve many purposes. This program should be Implemented as soon as possible.
OpportunltIos
There are numerous opportunities to Improve the Fire Marshal's operation; they can roughty be
grouped Into two categories: people and hardware. There is a need for clerical support (none
currenUy). and for a fire protection engineer to review construction documents. There Is a need
for computers and record-management software to minimize paper proliferauon. There is also an
opportunity to Improve the Emergency Management function, which has been outlined in a
o
0," \... ,
previous section.
49
I People
Add a full-time clerical position
Delete the Assistant Fire Marshal
Add ~ graduate fire protection engIneer
-, Hardware
Acquire computers for inspectors
Obtain record management software
Provide cell phones to Inspectors
I I
Clearwater Fire & RIICUI Dtlpartment Management Study
,,~
Recommendations
The primary recommendation for the Fire Marshal operation Is to relocate It to the Munkipal
Services Building, In order to enhance customer service. The consultants believe strongly in the
one-slop-shop concept for municipal building and development services. Of necessity I due to
State law. the Fire Marshal must stili report to the Fire Chle~ however, hlslher physical location Is
not Important. The overall services to the citizens will be enhanced by this move.
Another enhancement to resident's safety Is a Home Inspection Program. This type of service Is
very popular, and requires little effort - volunteer Inspectors can be recruited If needed. This
program would be voluntary: I.e., by resident request only. No record, other than the address,
need be maintained; the only paperwork Is a Hazard Identification form which Is given to the
resident. It Is a very useful program which produces excellent results.
...tA-...
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The remaining recommendations are listed below in tabular form, In two categories. All are
Important to upgrade the capability of the Fire Marshal operation.
This segment concludes the Services section.
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. .
Clearwater Fire & Rescue Department Man.gement Study
,')
RECOMMENDATION SUMMARY
r
The following Is a recap of the major recommendations contained In this report. The listing deals
with big-ticket Items, Including personnel.. apparatus, and facilities, not In priority order.
Procedural and hardware Items are not Included.
i~,
Personnel
Delete District Chief rank
Add six Captains
Assign Captains to apparatus
Add three Deputy Chiefs
Add three Fire Fighters (DC's)
Restructure Deputy Chiefs
Delete Assistant Fire Marshal
Delete Admin. Supt. position
Add Emerg. Mgmt. coordinator
Add fire protection engineer
Add EMS QA coordinator
Add two clerical positions
Add 21 fire fighters (Sta. 52)
Final Comments
Apparatus
Dispose of Sta. 50 brush unit
Purchase Sand Key unit
Replace Engines 47; 50
Replace RescLles 45. 49. 50
Start replacement schedule
Facilities
Add Sta. 51, 52
Renovate Sta. 47, 48, 50
Replace Sm. 45; 46. 49
Start replacement schedule
The consultants wish to acknowledge the cooperation and assistance provided by the entire staff
.
of the Clearwater Fire & Rescue Department The completion of this study in the short ti~frame
.
allotted would not have been possible without theIr assistance. Special thanks to Fire Chief
Rowland Herald, Brian Baldwin, Chartey Flowers, Cindi Hochberger. and Virginia Costa for their
help In making arrangements and scheduling. It has been a pleasure and a positive experience
for the consultants to engage In this study of the Clearwater Fire & Rescue Department.
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Appendix A
InftJa.a -, Actual Name
-
ADA Amerfcans With Disabilities Act
, Citizens Emergency Response Team
CERT
CISD Crlticallncldent Stress Debriefing
.EEOC Equal Employment Opportunity Commission
> 'Ii
EMS Emergency Medical Service
'FEMA Federal Emergency Management Agency
" FLSA Fair Labor Standards Act
HR Human Resources
'..-......
~) IAFC International Association of Fire Chiefs
'of
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IAFF
NFPA National Fire Protection Association
NIOSH National Institute of Occupational Safety and Health
OoT Organizational Development Team
, OSHA Occupational Safety and Health Administration
QA QualitY Assurance '
SCBA Self-Contained Breathing Apparatus
''.'
SaG Standard Operating Guideline
SOP Standard Operating Procedure
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Proposed Facility, Improvements
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, Appendix B
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Clearwater Fire & Rescue Department
.. '
Proposed Facility Improvements
Ye.r Facility EIUmated C~.t l
1999 . Build Sand Key Station (51) $ 500,000
Replace Station 49 1,000,000
" Remodel Station 47 300,000
2000 Remodel Station 46 300,000
Remodel Station 50 300,000
Sulld Station 52 1,000,000
(3 2001 Replace Station 45 2,000,000
<.12002 Replace Station 46 1,000,000
2009 Replace Station 47 1,000,000
.-
2014 Replace S~tion 48 1,000,000
2019 Replace Station 50 1,000,000 .
Total fire station capital replacement 'or 20 years: $ 9,400,000
Costs not adjusted for inflation
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Fire Station Location Maps
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Appendix C-1
. Current Fire Station Locations
Colors signify each stationls five-minute response district
Black indicates' areas not served within five minutes
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