Comprehensive Fire Department Audit/Assessment Report. For the Town of Maine, WI. Conducted By

Transcription

1 Comprehensive Fire Department Audit/Assessment Report For the Town of Maine, WI Conducted By December 2010

2 McGrath Consulting Group, Inc. P.O. Box 190 Wonder Lake, IL Office (815) Fax (815) Copyright 2010 McGrath Consulting Group, Inc. All rights reserved. No part of this document may be reproduced, stored in a retrieval system or transmitted in any form or by any means, electronic, mechanical, photocopy, recording or otherwise without the expressed written permission of McGrath Consulting Group, Inc. McGrath Consulting Group, Inc. Page 2

3 Table of Contents Comprehensive Fire Department Audit/Assessment Report... 1 For the Town of Maine, WI... 1 Conducted By... 1 December Introduction... 7 Executive Section Department Culture Future Opportunities Issue: Safety Issue: Recruitment/Succession Planning Issue: Data Issue: Communication Administrative Section Human Resources Association Recommendations Association Personnel Procedures National Standards Recommendations National Standards Emergency Activities Recommendations Emergency Activities Response Times Recommendations Response Times Fire Station Recommendations Fire Station Apparatus Recommendations Apparatus Training Recommendations Training Fire Prevention Recommendations Fire Prevention Public Safety Education Recommendations Public Safety Education Fiscal Recommendations Fiscal Miscellaneous Topics First Responders Safety Recommendations Miscellaneous Appendix A Data Request Appendix B Human Resources Recruitment Recruitment Program Is there A Need? Recruitment Activities Recommended Application McGrath Consulting Group, Inc. Page 3

4 Recommendations Recruitment Interview Process Future Hiring Process Recommendations Future Hiring Process Hiring Consortium Post Interview Activities Recommendations Post Interview Activities New Member Orientation Recommendations New Member Orientation Immigration Reform and Control Act Recommendations Immigration Compensation Recommendations Compensation Performance Management Recommendations Performance Management Promotion Recommendations Promotions Policies and Standard Operating Guidelines Policy/SOG Distribution Recommendations Policy Manual/SOG Personnel Records What Should Be In Personnel Files Employee Access to Records Records Retention Recommendations Personnel Records Appendix C National Standards National Fire Protection Association (NFPA) Staffing and Response Time Fire Suppression Operations Occupational Safety and Health Administration (OSHA) Insurance Service Offices, Inc (ISO) Center for Public Safety Excellence Standard of Response Coverage (SORC) Commission on Fire Accreditation International (CFAI) International City/County Management Association (ICMA) Appendix D Emergency Activities Total Emergency Incidents Incidents by Nature EMS Providers Separation Identifying Emergency Service Trends Simultaneous (Overlapping) Emergency Incidents Incidents by Time of Day Incidents by Day of the Week Incidents by Month Incidents by Area Mutual Aid/Automatic Aid McGrath Consulting Group, Inc. Page 4

5 Incident Trend Findings Mutual Aid Box Alarm System (MABAS) Appendix E Response Times Response Time Components Maine Fire Department Response Times Response Software Appendix F Fire Station Appendix G Apparatus Apparatus Description Apparatus Replacement Program Appendix H Training Maine Fire Department Training Program Training Scheduling, Manual, and Lesson Plans Training Performance Standards The Liability of Poor Training Training with Mutual Aid Companies Firefighter I Certifications Leadership Training Appendix I Fire Prevention Fire Inspections Fire Pre-Plans Appendix J Fiscal Maine Fire Department Budget General Obligation Notes for Fire Department Appendix K New Employee Checklist Appendix L New Employee Information Sheet Appendix M Summary of Recommendations Recommendations Association Recommendations Recruitment Recommendation Future Hiring Process Recommendations Post Interview Activities Recommendations New Member Orientation Recommendations Immigration Recommendations Compensation Recommendations Performance Management Recommendations Promotions Recommendations Policy Manual/SOGs Recommendations Personnel Records Recommendations National Standards Recommendations Emergency Activities Recommendations Response Times Recommendations Fire Station Recommendations Apparatus Recommendations Training Recommendations Fire Prevention Recommendations Public Safety Education McGrath Consulting Group, Inc. Page 5

6 Recommendations Fiscal Recommendations Miscellaneous Table of Figures Figure 1: Total Emergency Incidents Figure 2: EMS Quadrants Figure 3: 2010 Years of Service in the Maine Fire Department Figure 4: 2010 Age of Fire Department Members Figure 5: Maine Fire Department Age Compared to National Average Figure 6: 2010 Nationwide ISO Classifications Figure 7: 2010 Wisconsin ISO Classifications Figure 8: Total Emergency Incidents Figure 9: Incidents by Nature and Percent to Total Calls Figure 10 : Incidents by Time of Day Four-Year Average Figure 11: Incidents by Time of Day Figure 12: Incidents by Month Figure 13: State of Wisconsin Fire Training Flow Chart Table of Tables Table 1: Reasons People Do Not Volunteer Table 2: 2010 Fire Department Compensation Table 3: NFPA 1720: Staffing and Response Time Table 4: Incidents by Nature Table 5: Simultaneous Emergency Incidents Table 6: Incidents by Area Table 7: Mutual Aid Given and Received Table 8: NFPA 1720: Staffing and Response Time Table 9: Fire Department Response Times Table 10: Fire Department Apparatus Table 11: Recommended Target Apparatus Replacement Schedule Table 12: Recommended Apparatus Replacement Dates Table 13: Training Hours per Member Table 14: Fire Deaths and Injuries in the U.S Table 15: Town of Maine Budget Table 16: Town of Maine Budget-Fire Department Table 17: Town of Maine Fire Department Revenue McGrath Consulting Group, Inc. Page 6

7 Introduction McGrath Consulting Group, Inc. was hired by the Town of Maine, Wisconsin to conduct a complete objective audit (assessment) of the Town of Maine Fire Department. The Town of Maine lies within Marathon County in north central Wisconsin. The response area covered by the Town of Maine Fire Department is 55.9 square miles (34.9 square miles within the Town of Maine and 21 square miles for three contract protection areas) and covers a combined population of 4,425 residents. This response area includes several adjacent surrounding small communities, which contract with the fire department to provide their fire protection as well. The primary response area is largely considered a farmland/agricultural environment, but does include scattered residential homes as well as residential subdivisions. There are businesses and light industry in the area as well as an Interstate Highway System traversing their jurisdiction; the municipality borders the western shore of the Wisconsin River. At the time of the study, the Town of Maine Fire Department consisted of 45 active members including one Chief, one Assistant Chief, two Captains, (one of which is the EMS Captain), three Lieutenants and seven EMS Fire Responders. The Town of Maine Fire Department operates out of one fire station located at 6111 N 44 th Avenue. The fire station is housed in the same building as the Town of Maine Public Works Department, and is adjacent to the Town of Maine governmental offices and Town Hall building With the recent downturn in the economy, the Town of Maine Board supervisors are facing fiscal challenges as are many municipalities. The Board is doing its due diligence in assessing the most cost effective means of providing the highest level of emergency services now and in the future. Although the Town had attempted (with limited success) to obtain the necessary information from the fire department to ascertain that current and future department resources are within the Town s fiscal capability, the Board believed that an independent McGrath Consulting Group, Inc. Page 7

8 consulting firm s assessment of the current and future needs of the fire department was a prudent endeavor. Of particular concern to the Board was what appeared to be a very limited number of new members and overall fire department succession planning. The Board had some questions regarding the level of service; their primary concerns focused around the ability of the department to maintain a level of service without the influx of new members. In addition, the Board wanted to assess the efficiency of the current operations of the department as well as understand what apparatus is needed and how best to fund these large expenditures in the future. During the course of the study, it became apparent to the consulting team that there exist copious opportunities to improve the communication between the department leadership and governing Town officials. This statement does not imply that a single individual or group is at fault; rather, past events seem to have had an impact on meaningful communication between these two groups. As with most organizations, there is room for improvement. Even though communication may be problematic, it is appropriate to note that fire department members and governing officials all are dedicated to providing quality cost effective service to the residents and visitors of the Town of Maine. In conducting this independent audit, the McGrath Group utilized a study methodology which examined all aspects of the fire department s operation, policies, procedures, reports, and historical and current data. The consultants met with and interviewed the department s officers, members (both current and past), governing officials, and nonmember stakeholders. Based upon these findings, a complete independent audit of the fire department, along with recommendations is contained within this report. Interviews were conducted by members of the consultant team in a neutral location away from the fire station and were completely voluntary. Each interviewee was assured that every attempt would be made by the consultants to keep their individual comments and McGrath Consulting Group, Inc. Page 8

9 information shared confidential. The following individual(s)/group(s) were interviewed by the consulting team: Town Chairman Town Supervisors Fire Chief Fire Department Assistant Fire Chief Fire Department Officers Fire Department Personnel EMS Officers and Personnel Retired/Past Firefighters and/or EMS Personnel Fire Department Applicants Neighboring Fire Department Personnel Other Town Employees Town Residents Five consultants were assigned to this study, with each addressing topics that were appropriate to their specific experience/skills and area of expertise. Dr. Tim McGrath Project Manager Dr. McGrath is a retired Fire Chief with 33 years of fire and EMS experience. He has served as the Fire Chief of two very diverse communities. He has experience in leadership of fire departments comprised of fully career to combinations of career, paidon-call, part-time paid, and contractual personnel. He has been a fire/ems consultant since 1997 and president of McGrath Consulting Group, Inc. since Chief Mike Stried Lead Fire/EMS Consultant Chief Stried has over 32 years of fire/ems service experience. He recently retired after holding the rank of Battalion Chief/EMT-P for a Chicago suburb fire/ems department. He has also served as Chief of a paid-on-call fire department. Chief Stried is a graduate of the National Fire Academy s Executive Fire Officer Program, a Chief Fire Officer McGrath Consulting Group, Inc. Page 9

10 Designee (CFOD), and has been granted Chief Emeritus by the Illinois Fire Chiefs Association. Dr. Victoria McGrath Human Resource Consultant Dr. Victoria McGrath is Chief Executive Officer for McGrath Consulting Group, Inc. and has 19 years of municipal leadership and human resource management experience both in the public and private sectors. Dr. McGrath brings a non-public safety perspective to our studies dealing with the human resource aspect of service delivery and change. As the Human Resource Director of a large suburb of Milwaukee, Wisconsin, she has extensive experience with organized labor including the International Association of Fire Fighters (IAFF) as well as other municipal unions. Her portion dealt with all of the personnel aspects of the department and Town. Battalion Chief Larry Pieniazek Fire/EMS Consultant Chief Pieniazek retired from a Chicago suburb fire department with 33 years of service as a command officer, firefighter, and EMT. Chief Pieniazek dealt with the areas of data assessment, training, fire prevention, and public safety education. Fire Chief Tim Rasch Fire/EMS Consultant Chief Rasch is a current Fire Chief of a thirty-three member volunteer fire department in Wisconsin that protects 21.5 square miles with very limited positive water sources. Chief Rasch has 16 years of fire and EMS experience and is a state certified firefighter/emt. Chief Rasch not only brings the perspective of a volunteer organization, but also has developed innovative solutions within the fire/ems field. Chief Rasch conducted the assessment of the fiscal aspects pertaining to this study. The consultants wish to express their appreciation to the many individuals who participated in ensuring the consultants received the information requested for this report. (Appendix A is the list of data requested by the consultants). The consultants wish to express special acknowledgement to both Fire Chief John Ohrmundt and Captain Bob McGrath Consulting Group, Inc. Page 10

11 Pound, who provided the majority of the data, as well as Town Chairman Betty Hoenisch for the additional data and information requested. The consulting team performed independent assessments of the fire department and assessed the issues free from any influence or pressure from any governing or fire department official. Any report of this nature is only as good as the data and information provided to the consulting team. The consulting team made every effort to obtain accurate data and examined the issues from a non-prejudicial perspective. Therefore, the recommendations made within this report are based on quantifiable data provided by the Town, fire department officials, interviews, qualitative observations, documentation associated with the topic, and from the experience of the consultants, who have spent years of service in either fire and EMS emergency services or an aspect related to that endeavor. Prior to the printing of the final report the draft report was reviewed by the Board, Fire Chief, Captain, and one Lieutenant. The Board Chair, Fire Chief and Captain of the fire department provided clarifications which have been addressed in this report. This report will be divided into two major sections. The first is an executive (short) section addressing the critical issues pertaining to this study. The second section will be an administrative (more detailed) section, which might or might not include additional appendixes detailing the criteria on which the recommendations were based. McGrath Consulting Group, Inc. Page 11

12 Executive Section This section of the report will give an overview of the major issues the consultants were requested to examine. Initially the consultants were asked to focus on three issues of concern by the Town Board pertaining to the fire department: safety, recruitment/succession planning, and data principally to determine if the department data was sufficient and records were kept in a manner that protected the Town from litigation. As a result of the study, the consultants added a fourth topic communication as a significant issue. As previously mentioned, the majority of the report as well as the consultants recommendations were based on department data, interviews, observations, and documentation; however, the consultants attempted to determine the culture of the organization. These observations are addressed in the following section. Department Culture The consultants perception of the department is that it is comprised of and is lead by very dedicated individuals. Dedication to service is not the issue; rather, the issue is the department s willingness to adapt to change. More than 30 years ago, it was commonplace to have fire department leaders that controlled everything. They controlled the entire organization, including who could and who could not become members, and made all of the fire department decisions with very little input from members. Fire ground safety was not a primary practice, with little or no use of incident command and accountability systems. Little emphasis was placed on quality training; training more often consisted of storytelling about the big one. Leaders lacked the technological skills needed in today s fire service. McGrath Consulting Group, Inc. Page 12

13 Many of the above described situations exist today in the Maine Fire Department. Perhaps most notably is the resistance to accept new members, which some believe is done solely to protect the status quo. It is very obvious from an outsider s perspective that there is a considerable disconnect between the way the department is operated today and the way many members wish it were run. There are a number of members who go about their job attempting to make and/or achieve small advances in the organization in spite of the status quo philosophy. What usually happens is that some of the very dedicated get worn out over time and leave the organization as they begin to realize the organization is never going to change. Others may take the less constructive route of complaining to elected officials, filing complaints with state or federal agencies, or even taking legal action against what they perceive as discrimination or loss of property rights. There was a strong belief that a form of stagnation exists within the officer ranks of the department, largely due to the officers not being open to any new ideas as well as being slow to implement any areas that might be open to change. This viewpoint appeared to relate to all ranks from the bottom to the top of the departmental hierarchy. The expectation for all organizations to operate more effectively is common, and in a tax supported organization it is the right thing to do. There are many examples of fire departments that have been successful in changing their culture, and these organizations are successful in recruiting and retaining members as well as providing quality emergency services to their communities. Future Opportunities The department has almost endless opportunities to work with the local technical college in training and recruitment. What is surprising is that the Captain of the Maine Fire Department is an instructor in the college program and, although he brings his knowledge McGrath Consulting Group, Inc. Page 13

14 back to the fire department, there is little or no other relationship between the college and fire department. The college is well suited for leadership training, which would benefit anyone in a supervisory position from a Lieutenant to the rank of Chief. It has many young students who want experience with a fire department, and although Maine is not the busiest department, both the students and fire department could benefit from this relationship. When speaking to surrounding Fire Chiefs, nothing negative was said about the Maine Fire Department; rather, it was noted that they seldom responded to calls together (enforcing the need to train together) and that they have little interaction. Most knew the Captain, most likely from his teaching at the college, yet some stated they really did not know the Fire Chief or other officers and only interfaced with them at an occasional meeting. Another opportunity worth further exploration was the partnership with Rib Mountain. It was suggested to the consultants that Rib Mountain could place a manned ambulance in the Maine fire station to handle EMS responses. Although the consultants attempted to clarify this offer, the specific details were not fully discussed. If, however, the consultants understood the concept correctly, it would be worth evaluating the current contract relationship with the City of Wausau as a provider of ambulance service. The consultants are not suggesting that one is better than the other; rather, it is another opportunity to explore. The Maine Fire Department is comprised of very good group of dedicated individuals, who working together can make some significant changes in the department to make it a model of excellence. The talent is there the willingness to change is what is in question. McGrath Consulting Group, Inc. Page 14

15 Issue: Safety The Town Board members expressed concern for department safety because they have been contacted by department members who have brought this issue to them directly (this issue will be addressed in the communication section). The general concern brought forward by the membership, coupled with a general frustration regarding lack of information by the department leadership, prompted the Board to request the issue of safety during the employee interviews. The Fire Chief repeatedly articulated that his principle concern for all members was safety, and was proud of the fact that the department has never had a workers compensation claim. The consultants believe the Chief has a high concern for the safety of the members, and therefore should embrace many of the recommendations in this report. This feeling towards safety was repeated during interviews with the Assistant Chief and Captain. With that said, not everyone shared this perspective; 31% of those interviewed expressed some concern for safety, ranging from it could be improved to practices perceived as unsafe. The consultants most often heard that the department would benefit greatly from a designated safety officer. Interestingly, the consultants were told that there is a designated safety officer; therefore, if in fact one exists; there is obvious room for improvement on the function and responsibilities of the safety officer. It is essential that the role of safety officer be fulfilled on all emergency scenes and is not dependent on a single individual s presence at a particular call. In addition to a safety officer, a requirement of OSHA is that all personnel who might encounter smoke must be expected to use a self-contained breathing apparatus (SCBA). All such personnel must be certified by a licensed physician through a pulmonary function test. These records are maintained by the administrating doctor and the fire McGrath Consulting Group, Inc. Page 15

16 department. It does not appear that the department meets this requirement. There are no SCBA police, but if there is a significant accident or injury there will be numerous investigating agencies within the Town and department asking for all safety records, including any equipment testing standards such as pulmonary function test results. As with all records involving SCBA standards, there must be appropriate documentation maintained on all personnel, with the physician s signature on the fit-for-duty certification annually. These certifications must be kept on file. There are other areas of concern involving the use of SCBA in the fire service. All staff that are expected to use SCBA (again, anyone who will be in smoke) or respirators are required to be fit-tested annually for an acceptable fit for the face piece. Part of this requirement states that the fit test must be documented appropriately and those records maintained. The consultants were told by members that the department does not meet the NFPA standards in relations to SCBA usage and testing. If these records exist they were not provided, as requested by the consultants. The other safety concern most often mentioned was the lack of mandating the use of SCBA at the emergency scene. The consultants were told that some members refused to wear SCBAs, and others had facial hair (beards) that would preclude a seal and therefore negate the purpose of the SCBA. The consultants did not witness any emergency scene activities, so cannot validate these concerns. If either of these concerns heard by the consultants is factual, it is an issue that needs immediate attention by the department leadership. It is not a matter of personal preference whether to use or not use an SCBA; rather it is a mandatory safety requirement. Perhaps the most accurate comment expressed by a department officer was that department members are definitely told about safety, but the department sometimes lacks in practicing what they preach. McGrath Consulting Group, Inc. Page 16

17 Issue: Recruitment/Succession Planning Recruitment and succession planning will be discussed in greater detail in the human resource section of this report. The consultants will give a brief overview pertaining to these issues as follows: Recruitment: This is an area of legitimate concern. The primary concern of the Town Board was that annually the mean age of the fire department gets one year older. Most troubling is the fact that the lack of new members does not appear to be a significant concern to the department leadership; conversely, it is a significant concern to the Town Board and a good portion of the department members interviewed. The consultants have found there is a serious disconnect between what the Chief describes as the recruitment process and what the consultants heard from numerous other sources, including several individuals who had attempted to join the department. This is not to imply that the Chief is being dishonest in his response; rather, the entire recruitment process is inadequate at best. Most members of the fire department had no idea how new members are recruited, how the hiring process is currently conducted, or whether there was any real interest in bringing on new members by the department leadership. The recruitment of new members was a major concern voiced by many department members during the interview process. Firefighters as well as officers felt that recruitment needed to become a priority, as the department s median age seemed to be going up without adding new and younger members to balance the team. It was further discussed with the consultants that the old way of bringing on new members had become antiquated over the years. The word of mouth technique used by members, neighbors, and friends (which worked many years earlier) was no longer effective. McGrath Consulting Group, Inc. Page 17

18 The entire recruitment process is handled by the Fire Chief until he brings the candidate s name to the attention of the general membership. The consultants will recommend a more formal process be developed, which includes a hiring committee that oversees all aspects of the process from the time an individual shows interest until the time that individual is accepted or rejected as a department member. Current legislation both at the federal and state level mandates that the potential employer follows all legal means in determining who is and who is not accepted as a member. The entire process must be written and approved by the Town Board, who ultimately will be defending the department in potential legal action taken by an individual. The consultants did request on several occurrences the historical documentation of applicants requesting membership in the department. The Fire Chief indicated these records were maintained and the consultants asked to review them; unfortunately these records were never provided. Therefore, the consultants cannot validate how many individuals sought membership within the past four years and were not accepted. Records of this nature should be maintained under lock and key at the Town Hall inasmuch as the department members are employees of the Town of Maine. Further, there are state and federal record retention laws that must be adhered to and again, will be further discussed in the human resource section of this report. The consultants did have the opportunity to speak with individuals who had attempted to join the fire department but were unsuccessful; in addition; one who in fact was successful but very frustrated in the process. Each of these individual s descriptions of the process were very similar in that their requests for membership basically fell into an abyss. After repeated requests as to their status, they simply gave up or in some cases went to other fire departments, where they were accepted. The individual who did not give up stated he made repeated phone calls to the Chief which went unanswered until several months later when he was invited to a department meeting. Although several of the unsuccessful candidates shared their perception as to why they never heard or received material from the department, the common theme was that the McGrath Consulting Group, Inc. Page 18

19 department is a clique, and unless you have a contact already in the department you will not be welcomed; this reason was coupled with the fact they were young. Again, the consultants cannot verify these candidates feelings but heard similar comments often enough to understand there is a perception that new members often are not welcome. Whichever side of the story is more accurate is somewhat academic. The hiring process needs to be formalized and conducted by a committee which includes the Fire Chief, fire officer, EMS officer, and one Town Board member. Adoption of the recommendations regarding recruitment (human resource section) will eliminate any claims that the recruitment and application process for membership is biased. In addition to the actual process, one must consider the need to attract and retain applicants. One of the many ways in which to recruit members is to establish a strong working relationship with the Northcentral Technical College and its programs such as Fire Protection Technician Associate Degree and/or EMS Leadership Certificate. Although most students are sponsored by a local fire department and much of the training occurs within the fire departments within the college district; a relationship with the technical college could become a source of referral for Maine. The Chief indicated he is very much against taking on students because their tenure with the department will most likely be short and he did not wish to incur expense in training individuals who might only be on the department for a couple of years. The consultants believe that the Maine Fire Department is missing an opportunity. First, there is no expense to the department for the students to take the classes at the technical college. If the Chief was referring to the money paid to members for training, this is easily resolved by classifying students as probationary and issuing a small stipend. If the member is with the department for more than 24 months, one would think he or she would be eligible for membership at that point. McGrath Consulting Group, Inc. Page 19

20 Students can bring a whole new perspective to the department. Although they lack experience, they are being taught the most modern methods of firefighting and EMS work. Most are very enthusiastic and could be issued fire gear with a different color helmet, which would identify them at the emergency scene. These members would be restricted from certain fire ground or accident activities. Young potential members will bring a new perspective to the department, and the department could even have them stay at the fire station during a designated time period to perform simple tasks on a voluntary basis. In return, these students would be allowed to ride on the apparatus to the emergency and perform their designated functions. Succession Planning: It would be difficult for anyone to criticize the current Fire Chief and the Captain as to their dedication to the department. However, membership perception of the Fire Chief s amount of control and disconnect and concern over the anger management and interpersonal skills of the Captain are concerns that should be addressed. Even though these leadership issues were expressed among the membership, the majority of the department holds these two individuals in high regard. It became very apparent to the consulting team that the Chief and Captain have significant control in the department. For example, the consultants were told that the Captain is the only individual who enters data into the computer and solely controls the password for the computer and internet access, whereas the Fire Chief has significant control over the hiring and promotions within the department and does not share or train others in these operational responsibilities. In addition to control over operations, the average age of the fire officers is 61.5 years old. Nationally, only 6% of all firefighters in the United States are over the age of 60 years old, whereas in the Town of Maine Fire Department, 35% of the membership (483% higher than the national average) is over the age of 60. Obviously, there is an impressive knowledge base among these individuals. McGrath Consulting Group, Inc. Page 20

21 What is concerning about these examples is that control over the vast majority of decisions within the organization is held by only two individuals, and secondly, the higher than average age of the fire officers. Thus, the Town has a situation where only two individuals control or understand the majority of operations of a department in an environment of very long tenured individuals. If anything were to happen to either of these individuals, there could be no one to step in and carry on the mission of the department inasmuch as no one has been mentored or trained. Therefore, regardless if these two individuals are excellent or poor at their positions, the leadership of the department needs to be diversified among other officers and members, and succession planning should be a top priority. In addition to the Fire Chief and Captain, there is a Lieutenant who has only three years of experience (he was included in the average age of the fire officers). He is one of the few that is a certified firefighter on the department and is also active on the County s special teams; however, it did not appear that he is integral in the decision making process. The consultants were told that the perception of the membership is that it would appear that the current fire department leadership is more concerned with protecting their positions within the department rather than accepting new members that might bring in new ideas and change. One can resist change for only so long. It is similar to the analogy of pushing water uphill it can be done, but for only so long; eventually the water will prevail. The two factors combined (lacked of shared decision making and the average age of the officers) should concern the Town Board. Coaching, mentoring, and professionally developing personnel is an essential component of leadership, and more individuals should be involved in understanding and providing input into the organization so that if for some reason the Chief and/or Captain leaves the organization, there is a smooth transition. McGrath Consulting Group, Inc. Page 21

22 Issue: Data The issue with data is not that it is not available; rather, only one person is able to retrieve it. The Captain has sole control of the computer system and enters all the data from the handwritten response sheets when time permits. There are a number of issues with this arrangement. The days of recording emergency calls on paper and then duplicating the effort by reentering into the computer should be long gone. The department utilizes FirePrograms software, a recognized fire service data recording system. Much can be lost when a third party, who perhaps was not at the scene, is entering data about that call. If there is a question, the Captain needs to contact the officer who was at the scene and inquire about the incident. Legally, the accuracy of the data could be challenged inasmuch as time has passed from the event until a third party entered the data. A common argument is that when multiple people enter data, they do so in different manners; therefore, control is lost. In reality, if an individual is not entering data properly the answer is to give remedial training and hold the individual accountable. This is a basic function of management. There are two ways in which to combat this argument; the first is developing data entry controls, and the second is training on how to utilize the FirePrograms software. The software provider can provide support in the form of classes on how to utilize the software to maximize its effectiveness for the department. The consultants recommend that the department utilize this type of training for all officers, as it is these individuals who should be responsible for all data entry. Timeliness of data being submitted is an issue for the department. The U.S. Fire Administration National Fire Incident Reporting System (NFIRS), the world s largest collection of emergency response data, requires all fire departments to submit data to this source. In Wisconsin, this is most often accomplished by meeting the Department of Commerce requirement that all NFIRS reports be submitted to them. This can be accomplished in several manners, but the most prudent is to send the data electronically. McGrath Consulting Group, Inc. Page 22

23 The consultant met with the Wisconsin Department of Commerce, and the Town of Maine submitted the required NFIRS data in 2008; however, as of July 1, 2010 (mandatory submittal date), the Wisconsin Department of Commerce had not yet received any of the 2009 data for Maine. The Fire Captain is very knowledgeable and was able to retrieve the vast majority of data request submitted by the consultants. However, it was apparent that the majority of the data requested by the consultants was not something the department routinely queried. These included items such as response times, time of day, day of the week, calls by month, calls by district or area, turnout times, etc. All of these searches provide valuable information for the department leadership to make decisions on resource deployment and provide quantifiable data for determining future department needs. The Fire Chief should generate a monthly report highlighting the activities of the department. This report should contain emergency call data as well as the training, public safety education activities, etc. of the department. Further, this information should be routinely utilized in decision making for the department and should be communicated to Town Board members, especially when asking for additional resources and/or equipment. As a side benefit, the information can be used to acknowledge the efforts of the membership in participation and service to the department. Finally, more than one person needs access to the computer and internet. All of the department s computers should be networked together. All fire and EMS calls should be recorded through FirePrograms by the officer in charge at the emergency incident. Management, in their monthly queries of information, should implement quality control methods, evaluate the data input, and if necessary work with individuals who may have difficulty in entering data or when mistakes in data are found. McGrath Consulting Group, Inc. Page 23

24 Issue: Communication It is evident to the consulting team that the entire communication process between the Fire Department and the Town Board has diminished to the point where there is little to no day-to-day operational exchange of information. It is this lack of regular communications that has helped create an apparent division between the Town Board and the Fire Department. Decisions appear to be made on a regular basis with no input from either side, even though the outcome of those decisions routinely affects the other group. The consultants could spend copious time attempting to determine which side is most at fault resulting in one side agreeing and the other not; therefore, this would serve no purpose. Rather, it would be advantageous for the consultants to identify how communication can be improved. First, the Fire Chief is appointed by the Town Board. Therefore, he is responsible for responding in a timely manner to their requests for information. He is also responsible for informing the Town Board of any policy or operational changes within the department. The Fire Chief, not the Town Board or any member of that Board, is responsible for the operation of the fire department. Conversely, if the Fire Chief is not providing or performing to the expectations of the Board, it is the responsibility of the Board to communicate their expectations to the Chief in writing and hold the Chief accountable. If the Fire Chief does not meet those expectations, appropriate disciplinary action should take place if necessary, the Chief should be removed from the position. In the case of the Maine Fire Department, it appears that historically the fire department operated with little to no input from the Town Board and the majority of the correspondence between them involved and occurred during budget time. However, as fiscal times become more challenging, the consultants have found that Boards are performing their due diligence by assessing the cost of providing all services. The consultants have found that in some cases, the fire department leadership reacts negatively towards these inquires as if the Board is challenging their ability. Although McGrath Consulting Group, Inc. Page 24

25 such is not the case, perception is reality; when department leaders have great autonomy and suddenly are questioned, tension rather than a partnership sometimes develops. Boards are placed in a very difficult position when they are not able to get data or requested information from a department. Citizens expect, and rightly so, that the Board is spending their tax dollars wisely and providing the highest level of service within its fiscal capabilities. The problem exacerbates itself when department members approach the Board members directly with concerns or complaints. The Board cannot ignore the individual, yet simultaneously cannot allow the leadership of the department to be circumvented. Board members interaction with fire department employees is a complex relationship, and a relationship which can easily become problematic. The consultants believe this situation currently exists in Maine. Nothing positive will occur for either the department or Board unless addressed directly between the Board and the Fire Chief. All of the Board members interviewed, as well as a large number of the fire/ems personnel, acknowledged fire/ems members talk about fire department issues (usually complaints) directly with Board members. For the Board members, these situations become very challenging: if they do not speak with the employee, they give the impression they are disinterested and/or the employee has less rights than the average citizen who can approach Board members with concerns. If they do speak with the fire/ems employee, they create an opportunity for the employee to bypass the chain of command within the fire department and received information which is very hard to validate. Furthermore, if the communication is poor with the department leadership (as is the case in Maine) Board members are placed in a most difficult position. The consultants recommend the following procedure when approached by fire/ems department members wishing to speak about fire/ems issues: Meet with member to establish what the issue is. McGrath Consulting Group, Inc. Page 25

26 Have the employee put his/her concern in writing (always insist on a written statement). Inquire if the member has brought this issue to the attention of the Fire Chief If the employee has spoken directly to the Chief: Ask what the resolution was, and then contact the Fire Chief to confirm he/she is aware of the concern and that the information you received from the employee is correct. If the two parties have met (confirmed by both parties) and the issue(s) remain, the Board should: Have a designated Board member meet with the Fire Chief to work out a solution and discuss with the employee; and/or Facilitate a meeting between the two parties. Remember, the employee deserves an answer; however, there is a difference in receiving an answer and getting the answer one wants. Make it very clear to all parties that any form of retaliation for bringing the issue(s) forward will not be tolerated. If the employee has not spoken directly to the Chief: Tell the employee to speak with the Chief and then get back to you as to the results of that meeting (set a short time frame). Inform the employee that you will be contacting the Chief within a few days to confirm this issue has been addressed. If the employee s attempts to meet with the Chief have been unsuccessful, the Board member should arrange a time to facilitate a meeting between the Chief and the member. Do not take any action until which time the employee brings the issue to the Chief or if repeated attempts to talk to the Chief have been unsuccessful (exception involves life safety issues and/or harassment involving the Chief). It is not the Board s job to resolve department issues until such time as the issue is not being addressed by the department leadership. Although the Board might not always agree with the Chief s decision, his/her decision should be honored unless it involves an McGrath Consulting Group, Inc. Page 26

27 employee s safety, harassment involving the Chief, or violates Town policy. Philosophical differences should be resolved directly between the Chief and the Board and should not involve employees as the conduit for communication. In the case of Maine, it appears that getting information in a timely manner from the Chief is a significant concern. Therefore, if this is the case and meetings with the Chief do not improve the situation, consequences are needed. The Board should set clear and concise expectations with the Chief and hold frequent meetings to measure compliance and progress. The Board appoints the Fire Chief, and therefore he/she answers directly to the Board. Conversely, the Fire Chief needs to make some unpopular decisions when it concerns employees and what is best for the department. Therefore, the Chief must be allowed to lead the organization in the strategic plan developed between the department and the Board. Employees cannot be allowed the avenue to circumvent the authority of the Chief unless their concerns are not being addressed. It is worth repeating that there is a difference between being heard and hearing what you want to hear. The employee must be heard but not guaranteed of hearing what they want. Another area of concern heard by the consultants was that, historically, the Town Board had signed contracts with neighboring communities to provide services with little or no input for the leadership of the fire department. Conversely, the Board was recently asked by the department to sign a contract for services with a neighboring community with little or no documentation as to the reason, benefit, costs, advantages, or disadvantages. The Board was told something to the effect that this is a no brainer and requested they sign the contract now because it needed to be done within days. Any contract for services has fiscal, operational, and potential liabilities which need to be assessed and budgeted for in an appropriate manner. In either situation, it must be a clear expectation that all types of contracts or changes to the overall operations of the department must be fully discussed between the Fire Chief and Town Board. Both must include information and data as to McGrath Consulting Group, Inc. Page 27

28 how the item for consideration will impact resources and finances. There is no such thing as a no brainer item for either party. It was clear while interviewing the department leadership that significant differences and frustration exist, especially since the old Boards have never been this involved in department operations. The Town Board members expressed significant frustration with their inability to get timely information or even answers at all to their requests. The answer; both sides want the same outcome high quality emergency service, great respect and appreciation for the department members, and the ability to meet the needs of the citizens and visitors of the Town. This will only occur when the two sides sit down together and discuss their differences. Past wrongs perceived or real need to be shelved and all efforts should be made to focus on the issue of what is best for the people we protect. Therefore, the Fire Chief and a representative of the Town Board (single member) should begin monthly meetings to discuss issues of mutual concern. Quarterly, the fire department leadership team meetings, consisting of the Chief, Assistant Chief, and Captains (fire and EMS) should meet with the entire Town Board to outline progress and identify future discussion points. The bottom line is that the Town Board is legally responsible for providing fire protection to its citizens, and serving in that role they must ensure that the fire department leadership is meeting their expectations. Thus, the Town Board must hold all department heads and employees to established expectations. Absent clear expectations, each department will continue to do what they have always done. As with all department heads, the Town Board appoints individuals to these leadership positions, thus, the ultimate authority is the Town Board. McGrath Consulting Group, Inc. Page 28