CITY OF DE PERE, WI FIRE DEPARTMENT ORGANIZATIONAL AND CONSOLIDATION FEASIBILITY ANALYSIS REPORT. November 5, 2013

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1 FIRE DEPARTMENT ORGANIZATIONAL AND CONSOLIDATION FEASIBILITY ANALYSIS REPORT November 5, 2013 RW Management Group, Inc Appleton Road, Suite 2 Menasha, WI Phone: Fax: jroemer@rwmanagementgroup.com

2 TABLE OF CONTENTS Chapter Page Number 1. Introduction Project Overview Project Work Tasks Overview of the Current Demographics and Environment Fire Department Organizational and Consolidation Feasibility Analysis Operational Recommendations Operational Overview and Recommendations Governance and Administration Assessment and Planning Goals and Objectives Financial Resources Programs Physical Resources Human Resources Essential Resources Training External System Relations Consolidation Feasibility Public Safety Feasibility Implementation Plan by Priority Estimated Budget Project Budget Benefits Management Summary Project Overview Operational Recommendations Benefits Glossary RW Management Group, Inc. i

3 CHAPTER 1 INTRODUCTION Project Overview RW Management Group, Inc. was retained by the City of De Pere to conduct a Fire Department Organizational and Consolidation Feasibility Analysis. The Study will provide recommendations and options for the City to use now and in the future, when assessing department needs. Based upon the proposal submitted by RW Management Group, Inc. (RW) in August, 2013, the scope of the project was to perform a Feasibility Analysis to assist the City in developing a long-range plan for administrative and managerial improvements. This study was designed to have an independent third party review current service administration, operations, rules, regulations, personnel procedures, operating procedures and provide recommendations on future departmental needs, both short and long term. Further, an evaluation of the consolidation and public safety feasibilities was completed. This portion of the study was to assist in making recommendations regarding consolidating the fire department with area departments and the potential to create a public safety department with the Cities police and fire departments. The findings and recommendations are related to the operations, administration, and response for services rendered, related human resources, and equipment and program review. The review included the following categories: Governance and Administration Assessment and Planning Goals and Objectives Financial Resources Programs Physical Resources Human Resources Training Essential Resources External System Relations Consolidation Feasibility Public Safety Feasibility RW Management Group, Inc. 1. 1

4 CHAPTER 1 INTRODUCTION Project Work Tasks To complete the objectives set forth by the City, RW evaluated the Fire- EMS operations. RW met with and gathered the needs and concerns of fire service personnel. RW also met with City administration to further understand the growth potential of the City and contracted areas to determine the relationship between the projected growth of the City and needs of the Department. The following presents an overview of the work tasks completed by RW during the project. Developed a project team of appropriate users and stakeholders to oversee and participate in the project. The project team coordinated project schedules, evaluated findings and recommendations, and reviewed the final documents. Prepared for and conducted a Project Planning Meeting with the RW Project Manager, the Project Team and key project personnel. The purpose of the meeting was to define scope and mission, discuss the work plans, establish liaison responsibilities, coordinate project schedules and confirm other general arrangements. Initial Assessment and Observations Obtained and reviewed documentation provided by the department pertaining to this project, such as existing Fire/EMS documentation, Department policy and procedure manuals, detailed call volume statistics, service contracts, surveys, risk assessments and previous studies. Continued Assessment and Documentation Assessed the current Fire/EMS operations, potential consolidation opportunities and began to develop future needs by performing interviews and on-site observations with members of the Department. The interviews and observations were held in both group and individual settings. Interviews and observations were conducted with personnel from the following areas: Fire Department Administration Officers Firefighters Paid on Call Police Department City Administration Elected Official Neighboring Departments and Associated Agencies Other key Stakeholders in the community RW Management Group, Inc. 1. 2

5 CHAPTER 1 INTRODUCTION Interviews and observations primarily focused on the following issues: Current Fire/EMS operations, staffing and levels of service Administrative organizational structure Analysis of policies, procedures, standard operating guidelines and rules of the Department Major equipment analysis Facilities Consolidation feasibility Reviewed and analyzed the corporate culture of the Fire Department to determine the internal cooperation of members, the working environment and general camaraderie of the organization. Prepared for and facilitated a project status meeting to discuss the results of the interviews and on-site observations with the Project Team and reviewed the next steps of the project. Analysis, Performance Review and Recommendations Reviewed present Fire/EMS workflows and processes to develop and analyze potential organizational and operational requirements. This review was based on the Center for Public Safety Excellence (CPSE) categories and criteria. The performance indicators that were examined included the following: Governance and Administration Assessment and Planning Goals and Objectives Financial Resources Programs Physical Resources Human Resources Training and Competency Essential Resources External System Relations Determined any changes, or future trends, for the public safety industry standards related to Fire/EMS operational requirements. During the development of all recommendations, RW considered many factors and standards as a basis for recommendations, including: National Highway Traffic Safety Administration (NHTSA) Center for Public Safety Excellence (CPSE) National Fire Service Accreditation Program National Fire Protection Association (NFPA) Federal Emergency Management Association (FEMA) National Fire Administration (NFA) Occupational Safety and Health Administration (OSHA) Insurance Services Office (ISO) Rating Schedule RW Management Group, Inc. 1. 3

6 CHAPTER 1 INTRODUCTION Local Fire Protection Ordinances State of Wisconsin Statutes and Administrative Code Journal of American Medical Association Commission on Accreditation of Ambulance Service (CAAS) American Ambulance Association Developed comprehensive detailed Fire Department Organizational and Consolidation Feasibility recommendations, utilizing the information received from the documentation received, the interviews and on-site interim management. The projected growth and level of service needs were considered during the development of these recommendations. Recommendations include: Current Fire/EMS operations, staffing and levels of service Fire/EMS workload, call volume and activity Governance and administration Assessment and planning Physical resources Human resources Training and Competency Essential resources External system relations Current and anticipated budget issues Current and future facility needs Service delivery in regards to national standards Advantages and disadvantages of local consolidation Funding sources Review of future staffing needs Any other issues identified during the analysis will be addressed Prepared for and facilitated a Recommendations Meeting to present preliminary recommendations and obtain feedback from the Project Team. Document Preparation and Review Listed and described the findings and recommendations on the Fire/EMS governance and administration, assessment and planning, goals and objectives, financial resources, programs, physical resources, human resources, training and competency, essential resources and external systems relations into a draft report. Assembled the Analysis document. Perform a detailed quality assurance review of the document to ensure that the document meets the expectations of the Project Team and conforms to RW's standards. RW Management Group, Inc. 1. 4

7 CHAPTER 1 INTRODUCTION Prepared, produced and delivered the draft Analysis to the Project Team for review. Facilitated a Report Delivery Meeting to review content for accuracy and completeness. Facilitated an Analysis Review Meeting with the Project Team one (1) week after the initial delivery to answer questions regarding the content of the Analysis. Made any changes to the Analysis based on the discussions at the Analysis Review Meeting. Facilitated a formal presentation with the City Council of the completed Phase 1 part of the Analysis. Phase 2 Public Safety Analysis Assessed the potential public safety opportunities by performing interviews and on-site observations with members of the Police and Fire Departments. The interviews and observations were held in both group and individual settings. The interviews and observations were conducted with personnel from the following areas: Fire Department Administration Officers Firefighters Police Department Administration Supervisors Officers City Administration Elected Official Other key Stakeholders in the community Interviews and observations primarily focused on the following issues: Current Fire/EMS/Police operations, staffing and levels of service Administrative organizational structure Training Major equipment analysis Facilities Consolidation feasibility Reviewed and analyzed the corporate culture of the Police and Fire Department to determine the internal cooperation of members, the working environment and general camaraderie of the organizations. RW Management Group, Inc. 1. 5

8 CHAPTER 1 INTRODUCTION Prepared for and facilitated a project status meeting to discuss the results of the interviews and on-site observations with the Project Team and reviewed the next steps of the project. Analysis, Performance Review and Recommendations Reviewed present Police and Fire/EMS workflows and processes to develop and analyze potential consolidation organizational and operational requirements. Determined any changes, or future trends, for public safety industry standards related to Public Safety operational requirements. During the development of the recommendations, RW considered many factors and standards as a basis for recommendations, including: Commission on Accreditation of Law Enforcement Agencies (CALEA) Center for Public Safety Excellence (CPSE) National Fire Service Accreditation Program State of Wisconsin Statutes and Administrative Code Commission on Accreditation of Ambulance Service (CAAS) Developed comprehensive detailed Fire Department Organizational and Consolidation Feasibility recommendations, utilizing the information received from the documentation received, the interviews and on-site interim management. The projected growth and level of service needs were also considered during the development of these recommendations. Recommendations include: Current Fire/EMS/Police operations, staffing and levels of service Fire/EMS/Police workload, call volume and activity Training and Competency Current and anticipated budget issues Current and future facility needs Service delivery in regards to national standards Advantages and disadvantages of public safety Any other issues identified during the analysis will be addressed Prepared for and facilitated a Recommendations Meeting to present preliminary recommendations and obtain feedback from the Project Team. Document Preparation and Review Listed and described the findings and recommendations on the Public Safety governance and administration, programs, physical resources, human resources, training and competency, essential resources, external systems relations, consolidation and public safety feasibility into a draft report. RW Management Group, Inc. 1. 6

9 CHAPTER 1 INTRODUCTION Assembled the complete Fire Department Organizational and Consolidation Feasibility Analysis document. Performed a detailed quality assurance review of the document to ensure that the document met the expectations of the Project Team and conformed to RW's standards. Prepared, produced and delivered the draft Fire Department Organizational and Consolidation Feasibility Analysis to the Project Team for review. Facilitated a Report Delivery Meeting to review content for accuracy and completeness. Facilitated an Analysis Review Meeting with the Project Team after initial delivery to answer questions regarding the content of the Analysis. Made any changes to the Analysis based on the discussions at the Analysis Review Meeting. Produced and delivered final document bound copies. Facilitated a formal presentation with the City Council of the completed Fire Department Organizational and Consolidation Feasibility Analysis. Overview of the Current Demographics and Environment The City of De Pere has a population of approximately 24,209 in 2013 and encompasses approximately sq. Miles. The City of De Pere is located in Brown County, bordered by Allouez, Ashwaubenon, Ledgeview and Lawrence. De Pere Fire Rescue has contracts for EMS coverage with the Towns of Lawrence and Ledgeview and the Village of Ashwaubenon. The approximate population of the EMS coverage area is 33,000 and about 34 sq. miles. The department has a total of 29 career full time employees and 14 paid on call firefighters. Positions include the Chief, Assistant Chief, 3 Captain s, 3 Lieutenants, 3 mechanics, 17 Firefighters and an executive assistant. The Fire Rescue Department responded to 2,089 incidents in Fire Department Organizational and Consolidation Feasibility Analysis To present the findings and recommendations that resulted from the engagement, RW has prepared this document; commonly referred to as the Fire Department Organizational and Consolidation Feasibility Analysis. The remainder of this report is structured as follows: Chapter 2 Operational Overview and Recommendations: This section lists the findings and presents recommendations on the current and future issues associated with organizational aspects of the Department. This section is outlined in the following sections: o Governance and Administration o Assessment and Planning RW Management Group, Inc. 1. 7

10 CHAPTER 1 INTRODUCTION o o o o o o o o o o Goals and Objectives Financial Resources Programs Physical Resources Human Resources Essential Resources Training External System Relations Consolidation Feasibility Public Safety Feasibility Chapter 3 Implementation Plan: This chapter contains a phased implementation for the recommendations made in the Analysis. Chapter 4 Budget: Estimated Budget Worksheet Chapter 5 Management Summary: A summarized version of the Analysis is presented, highlighting the projects objectives and recommendations. Chapter 6 Glossary of Terms: A glossary of terms is presented for reference. RW Management Group, Inc. 1. 8

11 CHAPTER 2 OPERATIONAL RECOMMENDATIONS Operational Overview and Recommendations As stated earlier, the objectives of this project were to evaluate the City of De Pere Fire Department (Department) and make recommendations for the Department s short/long term organizational and administrative needs. The Report includes findings and recommendations relating to the Governance and Administration, Assessment and Planning, Goals and Objectives, Financial Resources, Programs, Physical Resources, Human Resources, Essential Resources, Training, and External System Relations of the Fire Rescue Department. This section evaluates the Department s present Fire/EMS organizational and administrative needs, and makes recommendations relating to the categories listed above. This review was based on the Center for Public Safety Excellence (CPSE), formerly the Commission of Fire Accreditation International (CFAI) categories and criteria. The De Pere Fire Rescue Department overall is doing a very good job of maintaining high standards in providing fire and emergency medical services. Department personnel displayed professionalism and were very cooperative throughout the review. The items italicized in the following pages are currently being implemented. Governance and Administration Findings The De Pere Fire Rescue Department is an organization established by Chapter 18.6 of the City Ordinances. The governing authority is the Common Council working through the City Administrator, and the Police and Fire Commission. The Common Council, City Council and the City Administrator are responsible for Departments over sight, performance program approval, and ensuring policy compliance by the department. The table of organization for the department is also approved by the Common Council. There are communication processes in place through the Fire Chief and City Administration to help guide the Common Council and Department in; policy making, planning, compliance with legal requirements, and the department s vision and mission. RW Management has concluded that at times there has been inconsistency in communications and miscommunications between the City Common Council, City administration and the Department administration when conducting business. The responsibilities of the Police and Fire Commission (PFC) are limited to the authority granted to the commission by Chapter of the Wisconsin State Statutes. The PFC does not have optional powers. The Fire Rescue Department currently consists of 28 sworn career and 14 paid on call firefighters and one executive assistant. The Department has an ISO rating of 3, which was completed in The department responded to a total of 2,089 incidents in These were RW Management Group, Inc. 2. 1

12 CHAPTER 2 OPERATIONAL RECOMMENDATIONS broken down by 1,737 EMS incidents or 83% and 352 Fire incidents or 17%. The department is part of the State of Wisconsin Mutual Aid Box Alarm System (known as MABAS). The Mutual Aid Box Alarm System Senate Bill SB 642 was approved by the Wisconsin State Legislature and signed by Governor Jim Doyle on April 5th, MABAS is a mutual aid measure that may be used for deploying fire, rescue, and emergency medical services personnel in a multijurisdictional and/or multi-agency response. Participation in the mutual aid program is voluntary. Equipment, personnel or services provided under MABAS are at no charge between municipalities. Expenses recovered from the responsible parties are equitably distributed. In addition, emergency personnel that respond to the emergency remain employees of their initial department or agency. MABAS is broken into divisions rather than regions. De Pere Fire Rescue is in the MABAS 112 region. Recommendations Continue to improve the communications and working relationship between Fire-Rescue administration and City administration. The Police and Fire Commission (PFC) by law should continue to be responsible for hiring, firing, discipline, and promotions. The City Common Council is responsible to review, approve, and perform appraisals of fire department programs to ensure compliance with basic City policies. This can be easily attainable through scheduled meetings with the City Administration and the City Common Council. Assessment and Planning RW reviewed area characteristics, fire and non-fire risk assessments and response strategies, and planning within the Department. The following findings and recommendations are based on planning concerns and risk management criteria that will impact outcomes and provide for the basic needs to complete the mission of the Department. Findings The City of De Pere has a population of approximately 24,209 and covers an area of approximately 12.2 square miles. The Fire Rescue Department also covers portions of the Town of Ledgeview, population 5,783, with approximately 14 sq. miles, the Town of Lawrence with population of 4,284 and 16 sq. miles and the City of Ashwaubenon with a population of 2,500 and a total of approximately 4 sq. miles covered. The Fire department currently has 29 total members with 1 Chief, 1 Assistant Chief, 1 Executive Assistant, 3 Captains, 3 Lieutenants, 3 mechanics, and 17 career Firefighters and 14 POC Firefighters assigned to fire suppression and Emergency Services. The Department operates 2 fire stations which were built in 1971 and in RW Management Group, Inc. 2. 2

13 CHAPTER 2 OPERATIONAL RECOMMENDATIONS The Department s current Insurance Services Office, Inc. (ISO) rating is a 3 in the entire district. The rating schedule measures the major elements of a City s fire suppression system. These measurements then are developed into a Public Protection Classification number on a relative scale from 1 to 10, with 10 representing less than the minimum recognized protection. The schedule is a fire insurance rating tool used to determine property insurance premiums that property owners pay to their insurance carrier. The Department does not have a standard of cover for emergency deployment, which outlines response time, pumping capacity and apparatus and equipment deployment objectives. The water supply system is adequate for the City, and is utilized in the planning effort as it relates to City development. The department relies on mutual aid for water tenders when fighting fires in non-hydrant areas. The Department takes an active role in promoting fire protection suppression and detection systems as part of the development and planning process. The Department does not have a long-range plan, which includes stations, vehicles and personnel for the next five (5) to (10) years. This study will help to provide the basis for the long range strategic plan. There are no current annexation issues or concerns with neighboring communities. Recommendations A fire risk assessment and response strategy listing the nature and magnitude of the hazards within the City should be completed. The fire risks in each planning zone, including required fire protection resources and special, routine and isolated hazards need to be identified (pre-plans) so an accurate standard of cover strategy can be established. The risk assessment and the recommendations and implementation plan in this report will provide the basis for a comprehensive strategic plan. A long range strategic plan should be developed for the Fire Department. Develop a program to provide businesses with fire-ems safety information. Develop a long term public safety plan for managing the potential growth of the City to the South East. Goals and Objectives RW performed an evaluation of the City and Department s goals and objectives, and has made recommendations for future documentation. RW Management Group, Inc. 2. 3

14 CHAPTER 2 OPERATIONAL RECOMMENDATIONS Findings The Common Council does have written goals and objectives for the fire department, but the fire department does not have their own written goals and objectives. The Fire Department management process has been unclear at times, and the fire department organizational structure has been limited due to ineffective responsibility assignments. There has also been an unclear management process in place to meet goals and objectives. The Department has multiple versions of Standard Operating Guidelines (SOG s) in place. There has been very little in SOG training and limited communications on objectives and goals, causing shifts to interpret the department direction from shift to shift. Recommendations RW Management recommends the Department define and develop a formal written mission statement for the DPFR with corresponding goals and objectives. This can be accomplished by the development of a committee representing the DPFR, Administration, and governing body in the development of the mission statement, goals and objectives. Once completed, everyone on the Department staff needs to be familiar with the mission of their fire department and how the Department is going to achieve its goals. Fire department needs to update and re-enforce department goals and objectives with members through a required learning/training program to ensure consistency and compliancy with all Department policies. City and department goals and objectives should be reviewed annually by the Chief and the Administrator, with any changes necessary brought to the attention of the City Common Council. This should be a scheduled meeting so that all City Stakeholders can appraise and address the effectiveness of the goals and objectives. The Department should identify and develop an updated management process (chain of command) that will be responsible for implementing the City and department s goals and objectives. This can be accomplished by developing a committee of City and fire representatives who through a plan will develop, teach, and ensure that all department employees have a very clear understanding of the chain of command. Adopt a clear process for the implementation of policies procedures and SOG s designed to meet the department goals and objectives. Expand administrative duties and responsibilities to provide better management and leadership. Write and establish clear standard operating guidelines, policies and procedures. Provide for department input and comprehensive training of new SOG s and policies RW Management Group, Inc. 2. 4

15 CHAPTER 2 OPERATIONAL RECOMMENDATIONS Financial Resources RW reviewed how the Department handled financial issues. Findings The Fire Chief develops the budget with limited input and recommendations from the officers and firefighters. The budget then goes to the City Administrator and City Common Council for review and approval. Financial reports are provided to the Chief by the Finance Director who reviews them periodically. The City also has an independent audit conducted annually. The Fire Chief reviews invoices for expenses incurred by the Department on a monthly basis and submits them to the Finance Director for processing and payment. The City Common Council has established fees charged for emergency medical calls. The Department is responsible for processing these fees and invoicing and collecting from patients. Given the complexity of medical billing, especially as it relates to Medicare billings, most EMS departments use the services of a third party biller. The De Pere Fire Rescue Department has at times not been able to submit the billing information to the biller on a timely basis. This delay in billings makes collection more difficult, resulting in the potential of lost revenue to the City. Recommendations The City should require all emergency medical service bills be submitted to the third party billing agency by the 15 th of each month for the preceding month. Instances where this goal is not met should be reported to the Fire Chief and the City Finance Director. This should be the sole responsibility of one department employee. The Chief should include officers and line personnel in the budget process, and use it as an opportunity to develop future Chief Officers. An example would be to ask all department employees to submit their own budget requests (wish lists) for the upcoming year, and then organize a meeting to prioritize the requests. All fundraising activities that involve City equipment should be governed by City policies. The Fire Department should utilize current financial practices and principals supported by Generally Accepted Accounting Practices. Programs This area is defined as the services, activities and responses provided by the department for the community, and supported by the mission, goals and objectives of the De Pere Fire Rescue Department. RW Management Group, Inc. 2. 5

16 CHAPTER 2 OPERATIONAL RECOMMENDATIONS Findings Fire Suppression The fire suppression performed by DPFR is supported by 3 Engines, 1 Ladder, 1 Utility, 3 Ambulances, 1 Boat, and 2 Chief Cars. All responding personnel are familiar with the Incident Command System (ICS), and seem to work well with their MABAS 1 neighbors. The Department had 352 Fire Rescue responses in The minimum staffing for the Department is 6 career Firefighters. There are currently 14 paid on call firefighters on the roster. There are often multiple incidents at the same time, which often leaves the coverage area empty with no one to respond. The Incident Command System is not utilized consistently. Recommendations Develop an apparatus replacement plan that makes more sense for the staffing levels of the department. RW recommends that the City look at moving towards a Rescue Pumper and a unit to fit their current staffing levels. This would allow both stations to adequately cross staff an ambulance and fire vehicle. Implement ICS SOG s that provide for consistent utilization of the Incident Command System on a daily basis. Enhance POC utilization and training so that they can be better utilized to support fire-ems operations throughout the coverage area. The current POC s are very much underutilized. RW recommends that they are scheduled, trained and allowed to perform fire and EMS duties with career personnel. Develop a duty crew call back for staffing empty stations. This would allow for the ability to staff secondary response vehicles and cover the City and contract areas with immediate response when there are multiple incidents and no personnel left in the stations. The Department should continue to train on NIMS, MABAS incidents, and EOC, with defined role and responsibilities of internal officers and surrounding departments. Fire Prevention Findings A Fire department code enforcement program is in place. State required annual inspections are to be completed with suppression personnel. The records indicate that 1,311 bi-annual 1 Mutual Aid Box Alarm System RW Management Group, Inc. 2. 6

17 CHAPTER 2 OPERATIONAL RECOMMENDATIONS inspections took place in There were extensive reports and complaints made that follow up inspections were often not taking place and that the same violations were found at the same businesses again and again each year. Recommendations Improve communications and coordination with fire prevention administration and line inspection crews. This would include the development of a written fire prevention program and review of fire inspection follow-ups on a monthly basis. Public Education Findings The Department provides presentations in schools and nursing homes on a regular basis. They also provide fire extinguisher training and have an annual open house event during fire prevention week each year. Recommendations Utilize the information from the recommended risk assessment to design a public education program for the City. This program should include coordination and involvement with all department personnel. Fire Investigation Findings There is a program in place for fire investigations. The Department has 4 members that are part of the Brown County Fire Investigation Task Force and work and train with that unit on a regular basis. The Department investigates cause and origin of fires beginning with Department personnel and escalates the investigation if needed through the B.C. Fire Investigation Task Force and Wisconsin Division of Criminal Investigation. The Department will also work with insurance investigators as needed. Recommendations Create a fire investigation, cause and origin standard operating guideline that outlines the process and steps that should be taken for the investigation of all fires. Prepare written fire investigation program, which outlines the goals, objectives and desired outcomes of the fire investigation program. Continue to facilitate the individual and Department involvement with the regional B.C. Fire Investigation Task Force. RW Management Group, Inc. 2. 7

18 CHAPTER 2 OPERATIONAL RECOMMENDATIONS Technical Rescue Findings The Department provides extrication, elevated rescue, water, ice and some structural collapse rescue when needed. Trench rescue and confined space rescue are provided by external resources. There has been limited tech rescue equipment and training. The boat has limited functionality. It has a small motor, needs to be trailered to a launch and then driven to the scene of an incident. The current boat has inflatable tubes and has had maintenance problems with maintaining the air levels. The boat can also not be used for ice rescue. There is limited availability of technical rescue trained department members. Recommendations A regional technical rescue team needs to be put in place for Brown County. Water, dive and ice equipment and rescue needs to be coordinated regionally. There are multiple technical rescue teams and boats and ice rescue equipment located throughout the County and there is very limited cooperation or coordination between units. Hazardous Materials Findings The Fire Rescue Department is trained to the awareness level. When needed Level A and B teams come from the Green Bay Metro Fire Department who manage the Brown County Hazardous Materials Team. Recommendations The Hazardous Material training level of the Department should be increased to the operational level. RW would also recommend enhanced cooperation with the GBMFD regional team. Emergency Medical Services Findings The Department has an excellent reputation in emergency medical service and RW has received nothing but positive feedback from all contract services and hospitals. The emergency medical technician and paramedic personnel all have current certifications RW Management Group, Inc. 2. 8

19 CHAPTER 2 OPERATIONAL RECOMMENDATIONS The Department has had limited success in developing a comprehensive quality assurance program, designed to maintain a high level of EMS competencies. Recommendations RW recommends enhancing medical direction and involvement with the medical director. This would provide exceptional training and interaction with ER physicians and nursing staff, which could include ride alongs and monthly on-site physician based training. The Department should also work to improve efficiency of durable supply replacement. This can be accomplished by facilitating an agreement with a hospital and improved inventory control. RW further recommends that the Department facilitate a comprehensive quality assurance program. This could be done in conjunction with the enhanced medical direction and hospital interaction. RW also feels that there should be an increase in EMS related public education activities. The United States has an aging population and the need for quality medical information and care is paramount. Emergency Disaster Management Findings There is a City emergency operations plan in place. There has been limited disaster plan or EOC training within the City. Most members of the fire department were unfamiliar with the City EOP. There was also an outdated copy of the Brown County EOP found in all of the fire apparatus. Most of the City administrative and supervisory personnel have received the recommended NIMS training. There is a well-equipped Emergency Operations Center (EOC) located in the basement of the public safety building. There also seemed to be confusion as to who was actually designated as Emergency Management Director for the City. Recommendations RW strongly recommends an increase in the emergency management awareness level. There should be improved cooperation with County Emergency Management and the City EOP should reflect the Emergency Service Functions found in the national Response Framework. RW further recommends that the City establish a written Emergency Management Program, which includes special event coordination and Incident Action Plans (IAP s). The City should confirm an emergency management director. The appointed director should review the NIMSCAST document with all department heads to increase awareness level of the NIMS requirements. RW Management Group, Inc. 2. 9

20 CHAPTER 2 OPERATIONAL RECOMMENDATIONS The Emergency Management Director should also facilitate increased emergency management and major incident management training and exercises for all departments Health and Fitness Findings There are no Department written health and physical fitness programs in place. There are also no annual physicals for all firefighters. Firefighters are given annual respiratory clearance exams. Recommendations RW recommends that the Department implements annual fire department occupational physicals. SPS Wis. Admin. Code (Fire Department Safety and Health Standards): (1) The employer shall assure that fire fighters who are expected to do structural fire fighting are physically capable of performing duties which may be assigned to them during emergency operations. (2) The fire chief may not permit a fire fighter with known heart disease, epilepsy, or emphysema to participate in fire department emergency operations unless a physician s certificate of the firefighter s fitness to participate in such operations is provided. While this statute does not mandate annual physicals, it is clear that annual physicals would be the predominate method for the Fire Chief to assure that fire fighters who are expected to do structural firefighting are physically capable of doing the job. RW further recommends that the Department establish a department health and physical fitness program. This should be designed to keep firefighters healthy enough to perform their duties. Physical Resources This section evaluates the Department s fixed facility, apparatus and maintenance and related personnel needs. Findings The Department currently has two (2) stations. Station 1 is adequate, properly positioned and maintained. This station is positioned to cover the City as a whole, but the contracted areas in the Town of Lawrence and the Village of Ashwaubenon would be longer responses. RW Management Group, Inc

21 CHAPTER 2 OPERATIONAL RECOMMENDATIONS Station 2 is inadequate and has many design and maintenance related issues. This station currently has the majority of the EMS call volume due to the contracted areas of the Town of Lawrence and the Village of Ashwaubenon. Based on the City s 2010 Comprehensive Plan Update the largest growth potential for the City will be to the South of Station 1. The department currently has the appropriate apparatus. Current staffing issues may present the need for a change in apparatus types and quantities. The majority of the current fleet is now beyond the average replacement age for apparatus. The department does do a good job of keeping the equipment in good running condition. The department mechanics and the public works mechanics do the majority of the work on the apparatus. None of the mechanics are Emergency Vehicle Technician (EVT) certified. The ideal standards of coverage for fire and emergency medical responses are 4-6 minutes from the time that the call is dispatched until the unit arrives on the scene. This standard is consistent with the standards of the following agencies; o o o o o o o o Occupational Safety and Health Administration (OSHA) National Highway Traffic Safety Administration (NHTSA) National Fire Protection Association (NFPA) American Heart Association Guidelines for Defibrillation and CPR National Standard of Care for EMS Response Journal of American Medical Association Commission on Accreditation of Ambulance Services (CAAS) American Ambulance Association (AAA) These established national standards for response have proven to be valid and will be utilized in legal cases as being the benchmark to which services will be judged. The Department currently meets these standards with the current station locations for City responses, and current staffing levels. This standard is not always met for contracted area response. The apparatus are fully equipped for structural firefighting, water supply is adequate for most areas and emergency medical response times are good. There is a capital Improvement program set up which outlines the replacement schedule for the apparatus, although the station maintenance or replacement is not part of that plan. Recommendations RW recommends that the Department establish a written standard of cover for emergency deployment, which accurately reflects the Department s capabilities. This should be based on the Risk Assessment that was recommended in the Assessment and Planning chapter of this report. RW Management Group, Inc

22 CHAPTER 2 OPERATIONAL RECOMMENDATIONS RW recommends that a new station be planned for, even though it may not be built for many years to come. A committee should be established to look at the stations, their issues and locations, along with the locations of surrounding departments. Update the inventory control system to provide better accountability of current assets. The City and Department should look at and research a bar-code system to better track inventory items. The City capital improvement plan for vehicle replacements seems adequate, but the City Common Council and Fire Department should update the CIP and consider sharing the cost of future purchases with their neighboring departments, based on the recommendations of this study. RW recommends that the Department certifies the Public work mechanics to the EVT level. Human Resources RW reviewed the development and utilization of human resources for the Department. The Department s organizational chart, City policies and standard operating guidelines were examined to provide a basis for the completion of this section. Findings The City Human Resources Director is the designated personnel manager for the Fire Department. Human resource polices, along with job descriptions for all personnel are in place. The Department also has current standard operating guidelines in place. The City policies and procedures are currently being revised and should be complete by the end of the year. The Department SOG s should also be re-written, reviewed, trained on and implemented. Recruitment, selection, discipline, probationary period, and promotion policies are in place, but there are concerns as to how they were or were not followed. Currently the Police and Fire Commission holds the responsibility for these areas with the Fire Chief providing input. The Department does not have a written new member orientation and training program. A written physical/fitness program is not in place at this time. The Department does not have a risk management or career development plan in place. The Department does not have a written risk management program in place. The City does conduct exit interviews when members of the department leave the service. RW Management Group, Inc

23 CHAPTER 2 OPERATIONAL RECOMMENDATIONS Recommendations RW recommends that the Department develop a career development program and a written health and fitness program for the Department. Mandatory physicals should be part of the health and fitness program. Establish recruitment, retention, and promotional process committee. The Department should develop a Health and Safety Committee, and begin putting together a risk management and safety program for the Department. Develop a written risk management process that will provide the City of De Pere with an analysis of community risk using real world factors. The risk assessment will include determining and defining the differences in risk between single family, multiple family, and commercial dwellings within the City. Update and provide a more structured new member orientation program. Establish a committee to review, re-write, implement and train on new SOG s for the department. Essential Resources RW interviews and document review provided a basis for the completion of this section. Findings The water supply in most of the coverage area is covered by a hydrant system, which is adequate. Mutual Aid Box Alarm System (MABAS) provides for Tender coverage from other departments for the areas that do not have hydrants. A county wide VHF Communications system is in place and dispatch is provided by a county wide dispatch center. This system provides interoperability with mutual aid departments. The County is behind on their required narrow banding of this system and installation of a trunked UHF system, which was to be completed by the end of The Communication Center does have adequate communication standard operating guidelines in place. The management information system does support the current needs of the Department. There is limited administrative support and resources available to the Department. Paper reports are being used for EMS. The station 2 computers are very old and in need of replacement. There is a T1 connection to station 2, which slows down the connection to the City server and applications on that server. There are two different records management systems (RMS) in place, one for fire and a different system for EMS. Paper reporting is still being utilized for EMS. RW Management Group, Inc

24 CHAPTER 2 OPERATIONAL RECOMMENDATIONS There is an office assistant position in place, which helps to support the administrative needs of the department and manages ambulance billing. Recommendations Complete installation of new radio system and adopt policies that will enhance service. RW recommends that the Department transition to one records management system for accurate data reporting. The computers at station 2 and the T1 connection should be upgraded to provide for more effective internet and server connections. RW further recommends that EMS transition to the utilization of notepads in the ambulances utilizing the internet connection to Imagetrend software and the State program. RW would recommend that Imagetrend becomes the single records management system for EMS and Fire and that the Firehouse records management system be discontinued. RW recommends that the office assistant position should transition to a confidential administrative assistant position. This position should be utilized less for billing and more for administrative support and services including purchasing, invoicing, payroll and budget. Training Training supports safety and is the backbone for all fire departments when it comes to providing services to their communities in a safe and efficient manner. Findings The department has processes in place to ensure proper training, but not in a consistent manner for all members. The De Pere Fire Rescue Department had an Assistant Chief position whose duties included being the training officer for the department. This position was eliminated and they have been using a shift captain to fill this void. There are some performance-based measurements are in place. The Department has a training records system in place, but needs updating to ensure that all members remain compliant. Recommendations Develop a long term comprehensive training plan that will include; training needs, benefits to the department and City, a timeline, mandatory and non-mandatory training needs, and budget. This plan should also identify training needs as they pertain to current and potential future risks. Enhance the accountability system to ensure all members are current with their training. Include daily shift training in the plan. Develop performance-based measurements for training. RW Management Group, Inc

25 CHAPTER 2 OPERATIONAL RECOMMENDATIONS Expand training with MABAS partners and technical rescue departments by setting up mock incidents and worse-case scenarios, to better prepare the members for incident types that are low frequency and high risk. Some examples would be; tornado drill, high school shooting, hazmat incident, etc. Assign training officer duties to the assistant chief. This will provide the ability to keep the training uniform across each of the 24 hour shifts. External System Relations This section of the report covers external department relations for fire, EMS and police coverage and their effect on the station and staffing needs of the Department. Findings The Department does not have a strategic plan in place that would also address the external relationships and potential for changes in those relationships based on population, economic factors, and county-wide emergency planning efforts. The MABAS agreement and related auto-aid agreements, box cards and standard operating guidelines are functioning well. The interaction with the police department has diminished over the last several years. The increased call volume of both departments, the lapse in first responder training for the police department and no joint training have all contributed to the lack of interaction. Recommendations RW recommends that the Department improve interaction and planning with the police department. This can be accomplished in several ways, such as holding joint briefings on special events, forming a joint special event committee, attending each other s briefings occasionally to address questions or concerns or special planning. The Departments can also provide subject matter training for each other and work and train together for joint incident responses. Consolidation Feasibility Ashwaubenon Public Safety Department Findings De Pere Fire Rescue has a good working relationship with Ashwaubenon. The De Pere Police Department has had limited interaction with Ashwaubenon Public Safety, although this may be RW Management Group, Inc

26 CHAPTER 2 OPERATIONAL RECOMMENDATIONS changing due to the sharing of a radio talk group and dispatcher, which recently took place with the new radio system. Ashwaubenon is landlocked with limited potential for growth, but is bordered by the Towns of Lawrence and Hobart, which have great growth potential. Ashwaubenon stated that all of their training needs are met while off duty and on overtime. That due to the multi-faceted approach there was extensive on-going training that needed to take place. There are currently no automatic aid agreements in place with De Pere. The Public Safety Department is open to automatic aid, shared services, mutual aid, contracted services, jointly staffed stations and assistance with technical rescue. The Public Safety Department does rely on the City of De Pere for assistance with fire and technical rescue. De Pere Fire Rescue is also under contract for EMS in the southern portion of Ashwaubenon. RW did not find interest with Ashwaubenon in consolidation or expanding public safety services in De Pere. Recommendations Facilitate the drafting and adoption of an automatic aid agreement with the Village of Ashwaubenon. This agreement would cover fire, recue and EMS mutual aid and shared services. The MABAS agreement does not provide liability coverage until the fire is at a box alarm level. Currently De Pere Fire Rescue and Ashwaubenon Public Safety provide assistance at the working still alarm level, which is prior to invoking MABAS. An Auto Aid agreement would also provide written legal coverage for non-emergency situations where the departments cooperate and work together. RW also recommends that the City create a committee to explore the potential, to create a joint Fire-EMS building that would replace De Pere Fire Rescue Station 2 on the West side. This station could provide for better coverage of the West side of De Pere and the contracted area in the Town of Lawrence, along with the Southern half of Ashwaubenon. The potential to joint staff this station should also be reviewed. Consolidation Feasibility Bellevue Fire Department Findings The Bellevue Fire Department is a combination department with 6 full time personnel and 32 paid on call personnel. They provide first responders for EMS calls and provide fire protection for the Village of Bellevue. The Village contracts with County Rescue to provide ambulance coverage for the Village. Bellevue Fire also has trained personnel and equipment to provide the Village with technical rescue services. De Pere Fire Rescue and Bellevue Fire have a good RW Management Group, Inc