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Home My WebLink About24- Administrator's Office CITY OF SAN SERPIARDINO - REQUEST 'OR COUNCIL ACTION From: Peggy Ducey, Assistant Subject: Report relative to the Management to the City Administrator Audit of San Bernardino City Fire ' Administrator ' s Office Department . Date: May 9, 1995 Synopsis of Previous Council action: 02/20/95 -- The Mayor and Common Council motioned that the matter be continued to May 15 , 1995 , and that staff be directed to to return with a progress report . Recommended motion: That the Mayor and Common Council: 1. Receive and file the Management Audit of the San Bernardino Fire Department conducted by Ahnont&Associates; 2. Reduce the number of battalions in the Fire Department from 2 to 1 resulting in the elimination of 3 Battalion Chief positions and authorize the addition of civilian administrative and clerical positions as recommended; 3. Approve is concept Priority Dispatch program for Fire; 4. Direct the City Administrator to oversee the implementation of the remaining recommendations and continue to monitor station activity with periodic reports to the Mayor and Common Council. 61U 0 Signat Contact person: Peggy Ducey Phone: 5124 Supporting data attached: YeS Ward: Citywide FUNDING REQUIREMENTS: Amount: Source: (Acct. No.) (Acct. Description) Finance: r ail Note;r 75-0262 Agenda Item No �� S T A F F R E P O R T At the February 20th Council meeting, the Mayor and Common Council directed staff to return in ninety days with a progress report regarding better Fire service statistics as well as progress on labor meetings for reductions in force. At this Council meeting, concerns were voiced regarding the lack of accurate data regarding the Fire Department's call load, making it difficult for the Mayor and Council to make an informed decision regarding the reorganization of Fire Department resources. The City's current Computer-Aided Dispatch (CAD) and Records Management System (RMS) do not provide accurate, detailed information on Fire department 911 calls. MIS is in the process of reviewing this problem and will be making appropriate recommendations. However, it was still necessary to analyze call information for action on the Fire audit, and Administration staff identified other ways to access information so Council could take action on the proposed recommendations. Since February, staff has worked closely with STAT Physician Services to develop a comprehensive report for the City's 14 , 000+ medical aid calls and now have a detailed analysis for six months of EMS calls. Since STAT only works with EMS incidents, staff still needed data for the 4 , 000 fire and other calls not covered by the STAT reports. To collect data on these calls, Administration staff reviewed every non-EMS fire incident report for 1994 and compiled a --oarate detailed analysis of these incidents as well . From both o_. hese sources, we have been able to create an accurate picture of what type of 911 calls the Fire Department responds to and what the resource deployment is (Attachment 1) . This will provide a be er foundation to assist Council in making some policy decisions about the audit. One audit recommeniation was to reduce the Department from two to one battalion, resulting in the elimination of three Battalion Chief positions. Currently the Department has two battalions on at all times, with each Battalion Chief supervising half the City's stations. A main concern was whether the elimination of one battalion would still provide for adequate fireground supervision and not jeopardize public service response or firefighter safety. Staff reviewed the resource deployment for all 911 incidents in 1994 and found that for all Fire Department calls, including both fire and EMS, Battalion Chiefs are deployed only 6-7% of the time (Attachment 2) . Furthermore, in most cases only one Battalion Chief was deployed to an incident, with only 1-3 incidents per month having two Battalion Chiefs on-scene. Except in rare cases, the department uses only one Battalion Chief to manage emergency incidents they respond to, but for 93% of calls for service, Battalion Chiefs are not deployed respond along with other Fire crews. Staff also reviewed the amount of time Battalion Chiefs actually spend on managing emergency incidents versus time spent on other administrative work. Staff found that on-scene management , comprises only 7 . 3% of their total 24 hour on-duty time (Attachment 3) . Remaining time is spent on other administrative duties such as coordinating staff, tracking leave time, participating in meetings and conducting training as well as non-productive time such as eating and sleeping. Again, based on this analysis of emergency scene management, battalion chiefs spend the vast majority of their time on administrative duties rather than emergency management responsibilities. Given current deployment practices, one Battalion Chief seems to be adequate to provide on-scene management. Elimination of one battalion would require that another position take over some of the administrative duties but the audit recommendation is to backfill the battalion positions with civilians that can perform the same duties at a lower cost to the City. Another issue that was briefly discussed at the February Council meeting was the closure of Fire Station #10 . At that time, Administration staff requested additional time to review more detailed call-load information from STAT Physician on EMS calls. Since February, staff has carefully reviewed the disposition and distribution of medical , fire and other emergency calls and are recommending an alternative approach to closing Station 10 that would result in a more efficient use of Fire Department resources. The audit report recommends that if Station 10 is closed, that the majority of the firefighting staff be re-deployed to create a sixth paramedic unit and to augment one of the truck companies. The increase in paramedic units was initially recommended in the ambulance feasibility study performed by Jim Page and was based on the fact that Paramedic Engine #2 was operating at well over recommended levels . Station #2 currently responds to 3 , 500+ calls annually (Attachment 4) . Fire professionals generally regard 3 , 000 runs annually as cause for evaluation and over 3 , 500 as triggering a need to either redistribute the workload among existing companies or place an additional unit in service. This workload level is a problem because service can be compromised due to employee fatigue and reduced crew availability. Data from STAT Physician Services show a call breakdown as follows: No Life Support (NLS) : 50% Basic Life Support (BLS) : 20% Advanced Life Support (ALS) : 30% (Attachment 5) Based on this data, 70% of all medical aid requests are BLS and NLS calls, which do not require invasive paramedic treatment. The City currently deploys a paramedic unit on every medical aid call because we do not have a medically approved means to prioritize these calls. A more efficient use of resources would be to deploy BLS engines on the BLS calls which would result in a decreased workload for the five paramedic units now in service. To do this, 2 the department would need to implement a prioritized dispatching program that would train dispatchers to use a proven interrogation process which allows for a medically acceptable way of identifying the level of the medical emergency and assigning appropriate resources. The result will be a more efficient use of existing Fire Department resources because it would reduce the workload for paramedic units without putting an additional paramedic unit in service. Staff is recommending that this action be piloted first before closure of Station #10 is considered. For the remaining audit recommendations, Council is being asked to authorize the City Administrator to oversee implementation and report back to the Mayor and Common Council on a regular basis for informational purposes as well as authorization on policy decisions. 3 r H N U j 1 L U ` LM y a co U � H � � y H co +, U C ' a N co cu co H G W p_ cu 4sJ i s � m So cc O O O O O O O O O O O O O O O O O O O O O O O O O O O O O O O O O O O O O O O O O O fSs w rl- W sn ct M N d M N - N — - - - - r - - — s� N 41 son- G N U ai aJ U lll W i V! E V-i 41 CL C y i4`r v1 cu Q m m i T U Lo CL IL a� E _ N L t i LL- ` m c m O O O O O O O O O C07 d O O O O O Q O O 0 m w W to M N .- C7 07 M i` Cfl Ln M N .- CY) +1 v U ro +1 H H Z W O W V Z Z — O C. } U G/! W LLJ (O W Z W W � O Z O W W Z O � W Z W W CL _ c/5 V W Z J O O CO tns CO = a Z O � a W N H W . 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N O N m J —N N N ui N W d O CD O T 1� W W N - - -- -- Lf) o O ----- ..-_ ..- N a - -- T O � T uj O (Y) O N U OC) W yam�)` T CD W !^ O - O E N Lo O Q N N _� N Ln -- (o LL LL N -- co 00 '- I AML N chi � N —k� I -- T V ° a C) 0 0 0 p p 0 O 0 0 0 0 00 O 00 O O O O O O O O O 0 0 0 0 0 0 0 0 0 0 N r O 6i C6 LO -1 C') N *' N T O 6i QO r:,� 6 In d- C'7 N r- T co Co r M 'r' _— N co V N O U) J r � Q — — N E.., CA M —N N N -N ui O z O LL cq- N J Z ao ,J Q cv- W* 4 - fl Ch , LO �► m d w � Q /LLB "' ❑ W - - — we F —N co- - T T O O T � V N � � N cm -- f,- N N (p (D (n -- '- C- co - — LO O Q N N co d N LL LL CQ O �► -- IQ F N CD cT V 0 zltz 0 0 C 0 0 0 0 0 0 0 0 0 0 0 0 0 Q 0 0 0 0 00 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 o co o 0 0 0 C) T O T 07 � d M 66 h+ 6 4 N T T T T T TQ T 0 (Y) (Y) d C) _ rn N T - — - CD —N u'' 11 j � - -Cy co U N LO - - N O N .,J C'r3 N N +L�j^ O N N— —CT- \j uj d N vI co Q Lo r' Q _ U Q Q r T LO m r,� - - -- — � co uu (o ____ _— -- _- -a T W N W T V M W N O T VI W U co AN co C a) 0) i O a) co cn as co VJ W LL LL -- - - - (y) 00 _ N i3 O 4 0 0 0 O O Q p d d d d d O O O O O p d O p a: d p d p p Q C' O d O d p d O O d d d O d p C) d p � e0 N 66 � U) "t 67 N r N d C) 66 � d n 4 co N in ,_ Calls received to -ep the Fire Station open Thomas & Ida Bartlett Lilia Bailey 921 E. Central 5074 Mill Creek Court 889-3450 880-3150 Paul Bashaw Newton Hendricks 970 W. Marshall 2730 "D" Street 883-3706 883-1659 Dorthy Whitman Annabelle Rivera 807 West 25th Street 2561 W. Walnut 882-1912 884-7219 Linda Jones Scott Bailey Carreer Pathways 5074 Millcreek Ct. 268 W. Hospitality, Suite_ 104 880-3150 381-4033 Carol Hollstein Elizabeth Herbert 885 W. Sheridan 550 W. 5th, Apt. 610 882-6541 888-0269 Tula Johnson 395 W. 28th Street 886-3431 Alan Edwards 307 S. Arrowhead 884-3044 Catherine Preston 1894 Commercenter West #104 383-0147 • Linda Stoll Time Clocks Sales & Service 1894 Commercenter West 885-2505 Lolly Rios EMSI 1894 Commercenter West #108 381-3811 Bernadine Spotts 2751 N. "D" 886-0936 CITY OF SAN BEf 'XRDINO - REQUEST 3R COUNCIL ACTION From: Peggy Ducey Subject: Report relative to Management Assistant to City Administrator Audit of San Bernardino City Dept: Fife Department. Date: February 13 , 1995 Synopsis of Previous Council action: R•+cnmmended motion: That the Mayor and Council: 1. Receive and file the Management Audit of the San Bernardino Fire Department conducted by Almont& Associates; 2. Reduce the number of battalions in the Fire Department from 2 to 1 resulting in the elimination of 3 Battalion Chief positions and authorize the addition of civilian administrative and clerical positions as recommended; 3. Suspend the closure of Fire Station No. 10 (Mill and Arrowhead) for 6 months; 4. Direct the City Administrator to oversee the implementation of the remaining recommendations. Z� Contact person: Peggy Ducey Phone: 5124 Supporting data attached: staff report/recommendations Ward: city wide FUNDING REQUIREMENTS: Amount: Source: (Acct No.) (Acct Description) Finance: Council Notes: Agenda Item No- STAFF REPORT The fire audit, which contains over 50 recommendations, is now complete. The following staff report summarizes the findings, presents recommendations on the major policy issues which deal with addition and deletion of positions and the closure of station 10 (Mill and Arrowhead) ; and suggests that the City Administrator oversee implementation of the remaining recommendations, which are primarily administrative in nature. The staff report is followed by a list of fifty-one recommendation guidelines. SELECTION OF AUDITOR AND PROCESS In July of last year, the City contracted with Almont Associates to perform a management audit of the Fire Department. Almont was chosen after reviewing their submitted proposal, evaluating their proposed price based upon the scope of work, and reviewing the quality of management audits performed other fire agencies. In the request for proposals (RFP) , the scope of services specifically requested a number of areas be reviewed, including the following: 1. Review the structure and management of the Fire Department and how it affects daily departmental operations; 2. Review all departmental written policies, procedures, goals and objectives; 3 . Review managerial effectiveness of the department; 4. Review departmental budgetary and financial practices; 5. Review facilities and equipment, including the number and location of stations, and resource allocation. In September, 1994 , Almont Associates completed the draft report which was reviewed by fire management and the City Administrator's Office. From comments made, a final report was completed in December and Almont made a presentation as to their findings to all Fire Department management and field personnel. Verbal and written comments expressed by fire personnel were then reviewed by Almont Associates and final changes were made to the audit report. SUMMARY The audit report deals with both basic operational and administrative issues as well as major policy issues regarding staffing and fire station configurations. Staff recommends that the Mayor and Council examine several major policy issues to give staff general direction. Then as certain recommendations are implemented, such as the creation of new positions, staff will come back to Council for final approval. A total of fifty-one (51) recommendations are made by the consultants (see attachment A) . Three ways of re-organizing the department are also presented. However, each reorganization option has some common staffing recommendations. Staffing: The study found that current staffing configurations for suppression apparatus, with three-person engine companies and four- person paramedic engine companies, is generally within acceptable professional standards. The consultants did make recommendations regarding management staffing, citing an uneven workload among fire management staff and the inability of executive management to direct overall policy since they are bogged down in daily budget and operational issues. To better use existing staff and provide for the ability to plan future departmental direction, the elimination and addition of the following positions were recommended: 1. Create Emergency Medical Services Coordinator: Currently, one battalion chief is responsible for both training and medical services. Given the size of the department, the number of EMS calls (over 15, 000 in 1994) , and the need for a well-developed training and testing program, the consultants recommended dividing these two areas of responsibility into separate positions, with the existing Battalion Chief responsible for training only, and a new EMS coordinator responsible for emergency medical issues. The EMS Coordinator could be a civilian position since the majority of duties would include interfacing with hospital personnel, County ICEMA staff, and other medical-related personnel, as well as overseeing the paramedic subscription program. Civilianizing this position would also save salary and benefits costs. 2. Create an Administrative Analyst position: Currently, fire executive management handles daily administrative duties such as budget preparation and daily budget administration. Other fire managers are involved in studies, data collection, and statistical analysis. Given the salary and benefit costs of sworn fire officers, it is more cost-effective to assign such duties to a civilian employee who is trained in budgeting, financial management, and data analysis. 3 . Restructure executive management positions: Currently, the span of control of the deputy chief is fairly broad and exceeds acceptable span of control levels for one individual. The position of fire marshall is below normal control spans and could easily be expanded. The consultants recommend adjusting these positions by reducing the responsibilities and of the deputy chief position and increasing the responsibilities of the fire marshall, creating more balanced areas of control. These two divisions would then divide departmental responsibilities equally under their direction, making for a more balanced management structure. 4. Create additional clerical positions: Currently, the Fire Department has four clerical positions for a department of 182 1 ' people. Consequently, fire management staff is often required to perform routine clerical duties. Given their level of training and expertise, as well as their salaries, this is not an efficient use of staffing resources. By freeing up management from basic clerical duties, they can concentrate on suppression-related activities, including planning, evaluating, and implementing new programs. - 5. - Eliminate One Battalion: Currently, the Fire Department suppression personnel operate under two battalions. Six battalion chiefs (two per shift) divide supervision of the eleven stations. The consultants have said it is possible to eliminate one of the battalion chief (BC) positions per shift if the funds are allocated to the other recommended positions. This would begin to push daily operational management of the engine companies and fire stations to a lower level, that of the captain. Fire captains currently are paid $82 , 000 annually in salary and benefits and supervise 2 to 3 other sworn staff. By eliminating one BC position, captains would assume responsibility for managing operations in their station and as well as within their fire district. In the event of a single alarm fire, the remaining battalion chief would still be on-duty to coordinate the resources of more than one engine company. In the event of a greater alarm fire, the department could implement call- back procedures. The Fire Department has expressed concern regarding the management of simultaneous single alarm fires and multi-alarm fires. Current operating procedures would require more than one battalion chief to respond. For a single alarm fire, the Fire Department dispatches a battalion chief, two engine companies, and an aerial truck. For a multi-alarm fire, fire dispatches four engine companies, two aerial trucks, and two battalion chiefs. Staff reviewed monthly reports for 1994 to ascertain the actual number and timing of single and multi-alarm calls. In reviewing single alarm calls for 1994, we found that 127 actual single alarm fire incidents occurred during 1994, averaging out to 11 fire incidents per month for the entire City. We also found that at no time did two single alarm calls occur at the same time. In fact, in only fourteen instances did two single alarm calls occur in the same day and in two instances did three alarms occur on the same day. During the same 1994 time period, the Fire Department had only 10 multi-alarm fires for the entire year. BUDGETARY REQUIREMENTS The cost of adding or upgrading any of these recommended positions within the Fire Department will be offset by the cost-savings associated with the elimination of the battalion chief positions. Actual savings cannot be calculated at this time since a recommended organizational structure has not been finalized, however, staff will keep the Mayor and Council informed as to costs and savings as new positions are requested. FIRE STATION LOCATION STUDY During the 1994/95 budget deliberations, some discussion occurred regarding the closing of a fire station as a budget balancing measure. The City Administrator recommended that before the Mayor and Council took action on this issue, a detailed station location study be completed so the Mayor and Council were knowledgeable as to the full impact of a fire station closure. To evaluate the current fire station configuration, Almont Associates used the FLAME fire station location and mapping environment software program. This software program is the latest in the on-going development and refinement of a dependable computer mapping model that enables fire and City officials to better plan and manage fire resources. FLAME is a geo-based planning tool that incorporates street network data, present and future population information, current fire station sites, alarm history, target hazard locations, and future proposed and approved development. Initial review of the fire station location study indicated a possibility of closing Fire Station 10, and redistributing some positions while eliminating others. However, a lack of complete data regarding previous alarm history resulted in difficulties for the consultant. The City's current CAD system (Computer-Aided Dispatch) and accompanying data retrieval is somewhat antiquated, and some alarm history for 1991 and 1993 was not retrievable. In October the City began a contract with STAT Physician Services to perform paramedic subscription billing. STAT has been able to provide the City with detailed alarm and run information that in the past was not available. Due to the inability to reconcile historical information and in order to feel fully comfortable with the recommendation regarding Fire Station 10, it is recommended that the closure of Station 10 be deferred for 6 months to allow staff to continue to gather alarm and response time data and better analyze Fire Department resource allocation. OTHER AUDIT RECOMMENDATIONS The remaining audit recommendations revolve around daily management and administrative regulations such as evaluation procedures, training opportunities, promotional procedures, and leave usage. There are also recommendations regarding a Building and Life Safety program, fire prevention fees, and the updating of department operational policies and procedures. It is recommended that the City Administrator be responsible for overseeing the implementation of the remainder of the recommendations, in conjunction with the Fire Department. RECOMMENDED MOTIONS The recommended motions are listed on page 1. Attachment A .N.. y • . 4 — H y y C C 'C ° O r^ Z .o 0 0 >. U U Mo o ,o O O a a a . = c a U, P _ o > F (t] •� C C v,1 C H •� +J •p 7 N Q� �+ _115 1 69 C C C � C ^_ C i- v 1 69 c6 +' 78 .00 00 00 Z s y E s [� E o ° C oo E eE E w o o E E E E C4 00 ' 1 N E N "' — 10 C4 6 FBI E w ►~� '•n f�/—f V�—1 r��n tom,) •,°Z O •C 'C n°. 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O y y U y C C O C R f0 y L d v U .2 8 .2 c� h E y c 1 ' c. v E Q .S � W. 45 � °E t� oo C� p .: MANAGEMENT AUDIT OF THE SAN BERNARDINO FIRE DEPARTMENT FINAL REPORT JANUARY 1995 Almont Associates PO Box 338 Almont, Colorado 81210 Telephone 3031641-3813 Fax 3031641 4154 O TABLE OF CONTENTS Letter of Transmittal Table of Contents i Recommendations ii 1.0 OVERVIEW 1 1.1 Study Purpose 1 1.2 Study Goals 1 1.3 Methodology 1 2.0 CURRENT PROFILE 3 2.1 Current City Profile 3 2.2 Current Fire Department Profile 3 3.0 DEPARTMENTAL STRUCTURE, MANAGEMENT, AND DAILY OPERATIONS 5 3.1 Utilization of Managerial and Support Staff 5 3.1.1 Appropriateness of the Number and Type of Managerial and Support Positions 13 3.2 Existing Organizational Structure 15 3.2.1 Effectiveness of Lines of Authority and Reporting Relationships 15 3.2.2 Span of Control 15 3.2.3 Proposed Organizational Structure 16 3.3 Organizational Communications 27 3.3.1 How the Department Communicates 28 3.3.2 Vertical Communications Within the Department 28 3.3.3 Horizontal Communication Within the Department 28 3.3.4 Communications Outside of the Department 28 3.4 Workload and Call Load Levels 29 3.4.1 Required Staffing Levels for Functional Positions Outside of Administration 29 3.4.2 Proposed Changes in Management,Operations and/or Organization for Increased Effectiveness 31 4.0 DEPARTMENTAL POLICIES AND PROCEDURES 35 4.1 Efficient 35 4.2 Comprehensive 35 4.3 Consistency and Application 36 4.4 Goal Development 36 Almont Associates i TABLE OF CONTENTS 5.0 MANAGERIAL EFFECTIVENESS 40 5.1 Are Management Practices and Procedures Effective in Daily Operations 40 5.2 Mechanism in Place to Insure Compliance with Policies and Procedures 40 5.2.1 Are Management Responsibilities Assigned at the Lowest Level 40 5.3 Management Clear on Their Assigned Duties and Responsibilities 40 5.3.1 Appropriateness and Adequacy of the Provisions For: 5.3.1.1 Performance Evaluations 41 5.3.1.2 Promotions 43 5.3.1.3 Transfers 45 5.3.1.4 Discipline 47 5.3.1.5 Termination 49 6.0 BUDGET AND FINANCIAL PRACTICES 50 6.1 Fiscal Management Practices 50 6.1.1 Budget Development and Preparation 50 6.1.2 Budget Management 51 6.1.3 Cost Recovery 52 6.2 Leave Time 52 6.2.1 Vacation 52 6.2.2 Sick 53 6.2.3 Overtime 53 6.2.4 Other Leave Time 53 7.0 FIRE STATION LOCATION 55 7.1 Fire Station Location Premises 55 7.2 Target Hazards 56 7.3 Population and Future Growth 56 7.4 Alarm History 57 7.5 ISO as Related to Station Locations 58 7.6 Response Time 58 7.7 Level of Service 64 7.7.1 Components of Service 64 7.7.2 Facilities 64 7.7.3 Apparatus and Equipment 65 7.8 Risk 65 7.9 Recommendations 66 Almont Associates i 1.0 OVERVIEW 1.1 Study Purpose The City of San Bernardino, California specifically, the City and Fire Department management, has selected Almont Associates to conduct a management audit for the San Bernardino Fire Department. This management audit contained the following areas of study: 1) a review of the structure and management of the fire department, 2) a review of Standard Operating Procedures and Policies, 3) managerial effectiveness, 4) a review of fiscal management practices, including leave utilization, 5) station locations and current facilities, 6) and staffing analysis. 11 Study Goals The primary study goals included: 1. A review of the managerial structure and effectiveness in managing the day-to-day operations of the fire department, as well as long term goals. 2. A review of the standard operating procedures and policies of the department and determine if they are being adhered to. 3. A review of and comments on the fiscal practices including leave utilization. 4. An analysis of the current station locations. 5. Providing comments on the various staffing levels and organizational structure. 13 Methodology The study was initiated through management level meetings to discuss in detail the background of the project. Study objectives were refined and agreement was reached on all study areas. Extensive staff interviews were conducted regarding current responsibilities, program needs, and service level issues. A physical review of the majority of the community was made to confirm facility locations, facility conditions, and to gain an understanding of the geographic and demographic elements affecting service delivery. Data collection included personal visits at each of the fire stations (on one Shift); a review of existing planning data and reports; review of City financial documents; review of Almont Associates 1 response times; and the generation of new information through research and discussion with related agencies and departments. The Project Team would particularly like to express appreciation to the management and staff of the San Bernardino Fire Department. Each person has added something to this report through the provision of written documentation or oral input. Additionally, members of the Planning Department and MIS Department were very helpful in the provision of information. Lastly, members of the Common Council and the City Administrators office were helpful in providing policy direction. Some of the written documents and information collected during on-site visits included: • Past budget documents for the City and the Fire Department. • Copies of various forms used in the Fire Department • Departmental Organization Chart • City-wide maps • S.O.P. staffing/deployment guidelines • Apparatus/vehicle listing • Maintenance records • Legal documents • Manuals • General Plan • Previous Studies • Interviews with Fire Department personnel, Citizens, and other City Officials • Census Tract Maps and related information • City Charter related to the Fire Department and employee compensation • Performance evaluation procedures • Job descriptions and pay classifications Almont Associates 2 2.0 CURRENT PROFILE 2.1 Current City Profile The City of San Bernardino is a full service City providing a wide range of City services. The City is a charter City rather than a general law City, as most communities are today. The form of government is a strong mayor form of government with a City Administrator who is responsible for day to day operations. A unique feature of San Bernardino exists in that the City Attorney holds an elected position independent of the Mayor/Council or City Administration. The City itself is composed of primarily residential, commercial, and light industrial uses. Residential uses have in the past and continue to develop from the downtown area outward and becomes less dense toward the foothills. The highest density is concentrated in or near the downtown area. The City is serviced by major transportation lines of railroad and freeway. The complete future of air transportation with the assumption of Norton Air Force Base is, as of yet, unknown. The San Bernardino community offers a full range of cultural amenities from the University setting to theater and concerts. 2.2 Current Fire Department Profile The fire department is a traditional fire department in that its primary resources are concentrated for fire suppression. By far its largest call volume and workload are in the area of emergency medical services (EMS). The full provision of EMS service, including transport, is currently pending in litigation. All of the service provisions of hazardous materials, EMS and suppression are provided from eleven (11) fire stations, supervised by two (2) on-duty Battalion Chiefs. The apparatus and staffing placement by position are listed on the next page. Almont Associates 3 STATION#1 1 Battalion Chief 1 Captain 1 Engineer 2 Firefighters Pumper 1 Captain 1 Engineer 1 Firefighter Ladder STATION#2 1 Captain 1 Engineer 2 Firefighters Med/Pumper STATION#3 1 Captain 1 Engineer 2 Firefighters Med/Pumper STATION#4 1 Battalion Chief 1 Captain 1 Engineer 2 Firefighters Med/Pumper 1 Captain 1 Engineer 1 Firefighter Ladder STATION#5 1 Captain 1 Engineer 1 Firefighter Pumpfr STATION#6 1 Captain 1 Engineer 2 Firefighters Med/Pumper STATION#7 1 Captain 1 Engineer 1 Firefighter Pumper STATION#8 1 Captain 1 Engineer 1 Firefighter Pumper STATION#9 1 Captain 1 Engineer 1 Firefighter Pumper STATION#10 1 Captain 1 Engineer 2 Firefighters Med/Pumper STATION#11 1 Captain 1 Engineer 1 Firefighter Pumper TOTALS 2 Battalion Chiefs 13 Captains 13 Engineers 19 Firefighters Two of the Fire Personnel listed at stations 2,3,4,6, and 10 are Paramedic/Firefighters. The department also provides ancillary services such as fire prevention, investigations, disaster preparedness, haz-mat, crash fire rescue, training, dispatch, vehicle maintenance and communications. There will be more discussion on these and other functions later in the report. Almont Associates 4 3.0 DEPARTMENTAL STRUCTURE, MANAGEMENT, AND DAILY OPERATIONS 3.1 Utilization of Managerial and Support Staff The organizational chart, on the following page, shows the current (as of June 1994) service organization and staffing plan of the San Bernardino Fire Department. As can be seen from a review of the information presented in the chart, nearly 84% of the total positions authorized for the department are employed to staff the direct service network, through assignment to one of three platoons assigned to field suppression and emergency medical response services. The positions allocated to administrative, suppression, and support functions are illustrated in Table 1 as follows: Table 1 Allocation of Positions Administration and Support Fire Commun/ Position AdMin Commun Trainin Prevention Equip Mgt Supers Total Chief 1 1 Deputy Chief 1 1 Division Chief 1 1 2 Battalion Chief 6 6 Disaster Coord 1 1 Dispatch Supervisor 1 1 Shop Supervisor 1 1 Total 3 1 1 1 1 6 13 Almont Associates 5 3 v z v c z 00 ° � W C C c N a 0 C C m .2 V O m .� a O O C U U i E E E c c p a y N m 0 a _o a N �� c a m c - O c s>. Z L c m o .o m o Z �°6 m m .° U-) C m y m N C ai m o� U -0 m O m y c °D 1� U c y C Q► O « i° � a •- o � w CC — m c a ea o a :3 E > > m m al m = m ¢ mw2act ¢ 05 >> ce ------------------y--------1 o t � c N C o a a m O m O W U m C L C U U C L U C 0.Cl U� .Slw o °C CO m O m '8 U m m o O O m 0 cD t 0 •-'O m A •O > m o 7 C >, m 0 =1.> •2 C m a t e) • 10 v o o o rtUa •- mcrUa - ac > CLU) ctacc O Y C T rR m OL U > :i T tD � � Yx, to N a o m >. U � c •� •� L E v V<•:: U m r O O m V c .0 y c m m O O N O •- i U Y t0 Q m m q -C C m m F- m 0 : 'D a Oo m 'p t m _Xv O p�C 'D m m y o 3 O m m N O : .- !/1 m U C7 m C cJ LL O a 2X- a j (/� U j LL m Q U a m ., O l,f .� LL CL O fn ^ m E v = m o o n j m 30 2i i� r a U W tL ti N o' 0 wwiiii22 � � aa L U c E _u .2 �o U U off ^ L) E h o > c m F- r, d u � w E aw ° E W m ° L A U o yV w o � C r:Q. .5 o ) m CD C o y c3 L m y O m 0 m m J - - N > L CL v o � vU - N o m m m m U) m m c c v+ OU c ma ooh au c v v r �' c U o pDC -° � m 'Cw2 c -D 0 o cti '� o U y C O D .9 v E 0.-= c c o o 1° m m m v o m C 0 c c m 'S o o a cl O CD c t CD m m v c y v c9 > > > m c. Q >,• m c o c `- p o E 0)a. wUUw cn m -2 aOC � EQ a� U) E o �a m �v f- o E m � w - m E 6 — C CL CL m QUW -°� OcnH t= o m pU� O U to 0 _ 0 Y Q.2: L O m °` C C 0 O m ` 10 ° m � y a m c E m 13 c o o m � B x c o m m Q O e Lu m ma i y a ` vrac' mm � c o o �ni o U a N o umi -�- m O m N m C J a N d N C) O J U _ c s o m rn m U U N U U - U m m 7 0 7 n a O Co v c ° °' E m m c F c Q c O c — m m _°- E a o m n o m m m b . C o o c _ v v. rn m E a> t m m w c o c m c N = a E o m > U u a U) m 1O ° °- 0 c m E m -° 3 0 � m N c ` C_ o m " In m " g c° m o o E ,2 m m c m > o m 0 o m . S - _ a p m .c Cl CO o a U m m m 0 m o o m `o m m R R u a m x E c c c c o. a > °� v E " m m n m a m a 0 m m m C: m e c 'n Current authorized staffing levels are below the number of positions authorized to the fire department in 1990. Available data indicate that over 14 people have been eliminated from the fire department budget over the last four (4) years. As a means to accommodate budget reductions the fire prevention bureau lost the following nine (9) positions: 1 Typist/Clerk, 7 Inspectors, and 1 Fire Prevention Engineer. Based on the recommendations of the Audit Team, additional personnel should be assigned to the Fire Prevention Bureau to provide appropriate level of inspections, plan check reviews and business license inspections. Based on the results of interviews conducted within the department, the project team identified a rather significant feeling in many sectors of the department that staffing reductions over the past years have seriously impacted the department. The current administrative organization,while functional, needs to be adjusted to balance top management workloads and increase capabilities in several key areas. Within the San Bernardino Fire Department there are several issues that we recommend be adjusted that involve the organizational structure, assignment of responsibilities, balance of management workload and reallocation of staff resources. Major issues include the following: Based on Current Operations and Likely Future Demand, the Deputy Chief Position is Overloaded. The Deputy Chief is currently filling multiple roles which involves the immediate supervision of supervisors managing the following department divisions: suppression, I training, vehicle maintenance, communications maintenance, budget and finance, and in conjunction with the Chief, serving as the major resource for departmental planning and effectiveness evaluation. Under current conditions, the Deputy Chief is spending the majority of his time managing and administering the department budget, leaving limited time to oversee, supervise and consult with his subordinate chief officers. Almont Associates 7 Concurrently, the Fire Chief faces major outside demands involving establishing and maintaining important contacts with the city's political and community structure. Considering the external demands on the Fire Chief it is anticipated that increasing demands will be placed on the Deputy Chief. Overall, the top management structure of the fire department needs two components: • The Fire Chief should have an "outside focus" with major responsibility for working with the City Administrator, Mayor, City Council, Fire Board, and the community to provide leadership in improving the fire protection delivery system. Maintenance of these key areas should be expected to consume a major portion of time. • In conjunction with the Chief's outside focus, the department requires a central position(s) focus with responsibility for coordinating all internal activities, including allocating significant attention to high priority areas, including planning, evaluating, and implementing new programs. Resources Allocated Are Insufficient To Support Necessary Operations And Services: The Training Division, which also includes Emergency Medical Services Coordination and the Communications Section, is the most critically understaffed of the various administrative and support service units in the fire department. Given current operations and assignment of responsibilities, the Division consists of one Division Chief and nine (9) Emergency Dispatchers. As currently configured, responsibilities for coordinating and supervising the department's training, paramedic programs and emergency dispatch are fragmented; insufficient staff time is available to devote to developing,implementing, and maintaining in-service training; and little time is available to consider critical needs involving management and supervisor training. Minimal clerical support is provided by personnel assigned to the Fire Chief and Deputy Chief. Clerical functions are many times provided by the incumbent. Training Division Currently the Training Division utilizes three (one on each of the three shifts) on- duty Truck Company Captains assigned to Fire Station 1 as Department Training Officers. This arrangement has enabled the department to accomplish minimal acceptable training Almont Associates 8 for suppression personnel. However, due to other priorities, management and supervisory training programs for Captains, Battalion Chiefs and Division Chiefs have not been implemented, this is primarily due to the lack of budgeted funds, planning, goal setting, and work load. Department Training Two major requirements face the Training Section and impact the level of staff resources required to implement and maintain programs. They include in-service training and development and implementation of management training programs. While actual conduct of most in-service training is the responsibility of company officers, there are still major requirements related to the in-service training program which include the following: • Planning • Training company officers to be effective instructors • Testing and evaluating company performance • Developing new training packages • Providing basic supervisory techniques for new Captains • Management training for middle management In a department the size of the San Bernardino Fire Department, it is not unreasonable to expect that one staff equivalent is required to develop, implement, and maintain a quality in-service training program. Given the above, resources allocated to the Training Section need to be expanded to include a Captain to develop new training programs and provide in-service training for all members of the suppression division. Paramedic liaison Liaison between area hospitals and the fire department is provided by a Firefighter Paramedic. This individual is assigned to a city Paramedic Engine Company and volunteers his off duty time to represent the city and department at Base Station and County EMS meetings. No formal reporting structure exists for this individual because he is volunteering his time. However, he does keep the Deputy Chief, Training Division Chief and his Battalion Chief informed of issues that are generated through his meetings with outside agencies. For a program so critical to the city and fire department it is imperative Almont Associates 9 that a full time Paramedic Liaison position be established. In addition, an improved reporting structure should be implemented that will enhance coordination and liaison of the department's Emergency Medical Services programs. Responsibilities for the Coordinator's position would include: coordination and ordering of paramedic supplies and equipment, liaison with base station hospitals and county EMS organizations, evaluation of department paramedics, and providing for continuing education programs for the department's Paramedics and Emergency Medical Technicians, and overseeing the paramedic membership program. This should increase revenue. Communications Section Dispatch Operations are administered by a civilian supervisor who is responsible for the supervision of eight (8) civilian dispatchers. Nine (9) dispatchers (including the Dispatch Supervisor) working eight (8) hour shifts, provide 24 hour around the clock, dispatching services for the fire department. In addition, all individual paging requests for city employees are handled by fire department dispatch operations personnel, monitoring security cameras and AQMD reports for the City. When the Dispatcher Supervisor is off duty, there is no direct supervision of personnel assigned to dispatch operations. The department should strongly consider upgrading two dispatchers to the rank of senior dispatcher in order to provide supervision on shifts when the Dispatch Supervisor is off duty. Present facilities are antiquated and not conducive to a good working environment. Consideration should be given to moving fine dispatch to the new police dispatch facility. Dedicated police and fire dispatch functions should not be dissolved. Separate police and fire dispatch should be maintained, rather than implementing dual role safety dispatchers. Because the department has just instituted the emergency medical services dispatch function, which requires specialized training and coordination with the fire department, it is imperative that the fire department is the first responder to medical incidents. Additionally, unlike police calls which can be "stacked", fire and medical calls require immediate attention and continued coordination. Almont Associates 10 Fire Prevention Section Resources Are Insufficient T6-Provide Necessary Inspection and Prevention Services For The City Of San Bernardino Currently, this unit is authorized four (4) positions: Fire Marshal, Clerk, Fire Investigator, and Inspector. A Division Chief serves as Fire Marshal, supervising the fire prevention organization. Current authorized staffing is well below levels authorized in FY 1990/91. In Fiscal year 1990/91 the Fire Prevention Division consisted of the Fire Marshal, two Typist Clerks, one Senior Inspector, seven Inspectors, one Arson Investigator and one Fire Prevention Engineer. (thirteen (13) total positions) This reduction of personnel has impacted the bureau's ability to effectively administer the following programs: code enforcement, wildland fire prevention, weed abatement, quality assurance, code interpretation, fire cause and origin, inspection of flammable and hazardous material storage occupancies, permit fees, plan development, plan review, public education, engine company inspection training, and knowledge of the building inventory in the City. It is recommended that the Fire Department coordinate its inspection programs with other City code enforcement agencies. This would help eliminate duplication of required inspections and provide additional resources to handle required city inspections. A sample of a code enforcement program from the City of Ft. Lauderdale has been provided to the City of San Bernardino. City Disaster Preparedness Coordinator Under the present organizational structure, the Disaster Preparedness Coordinator answers directly to the Fire Chief. In 1990 this position was transferred from the City Administrator's office to the Fire Department. Responsibilities for this position are citywide. He is responsible for developing disaster plans for emergency incidents that can develop in the City of San Bernardino; liaison to the Red Cross; director of the Emergency Operations Center, and City Disaster Coordinator with other local, state and federal agencies. The Coordinator and his staff are partially funded by FEMA through funds allocated by the State of California. The balance of funding is provided by the City of San Almont Associates 11 Bernardino. The Preparedness Coordinator's position is supported by one half Clerk III position and one Disaster Preparedness Representative. In addition to his assigned responsibilities, the Coordinator augments the department and the Fire Marshal's Office by assisting with public education programs, incident management training, and functioning as a member of the department management staff. Support personnel assigned to this position are housed in the Fire Prevention Section offices. In addition to handling their assigned duties, they provide backup clerical support for the Fire Department by entering Fire Department Incident Report data entries (CFIRS) and typing of fire prevention records. Suppression Operations Division Management Structure Under the present structure the Suppression Division consists of two Battalions. Each Battalion is divided into three platoons with Battalion Chiefs as supervisors. Personnel assigned to the Suppression Division work a 56 hour work week on a 24 hour shift schedule. To function well, the division requires extensive planning and internal coordination. This involves extensive written plans, documentation, and internal correspondence. Currently, the Suppression Operations unit, in general, and individuals assigned to key management positions are without clerical support. Inordinate amounts of management time are spent typing documents, trying to find clerical support elsewhere in the organization (extremely limited), and otherwise devoting time to activities which could be allocated to higher priority areas. In addition, the absence of clerical support at the Suppression Operations level complicates entry and retrieval of data useful in analyzing service levels and company unit utilization. Battalion Chiefs, in addition to supervising shift personnel and managing emergency operations are also assigned other administrative duties. Battalion Chiefs assigned to Battalion 1 are responsible for: Supervising building and grounds maintenance and repair, fire hose repair, scheduling and assignment of suppression personnel, Mutual and Automatic Aid Agreement negotiations, coordination of activities that involve the California Office of Emergency Services, power tool inventory and purchase, radio Almont Associates 12 inventory, safety clothing purchase and inventory, and ordering and disbursement of department supplies. Battalion Chiefs assigned to Battalion 2 are responsible for: apparatus equipment maintenance and inventory, haz-mat equipment purchases, rescue equipment purchase and inventory, furniture purchase and inventory, vacation scheduling of suppression personnel, and coordination of the vehicle maintenance shop, draft and monitor procedure manual and supervise communications maintenance worker. 3.1.1 Appropriateness of the Number and Type of Managerial and Support Positions. The current plan of organization and staffing of management personnel reflect a deployment philosophy that is somewhat consistent with approaches taken by jurisdictions comparable to San Bernardino. However, workload and assignment of responsibilities are extremely fragmented and unbalanced, primarily due to the inability of the Fire Chief to assign Battalion Chiefs to a forty (40) hour, five day work week schedule. (This is the opinion of the San Bernardino City Attorney's office) Administration The Deputy Fire Chief spends the majority of his time developing and managing the department budget. The recent addition of a Budget Clerk will in time relieve the Deputy Chief of some of the mundane budgetary tasks he is now performing. Under the present arrangement, the Deputy Chief has limited time to plan, supervise and work with his immediate subordinate officers. As a result of his work load, division managers for training, operations, vehicle maintenance and communications manage their divisions with limited management input and direction. Based on the size and activities of the department, one or two appointed middle management positions are necessary in order to effectively administer and supervise the department's divisions. These middle managers under the direction of the Fire Chief would function as the department's Executive Staff, responsible for planning and leadership of the department. At least one of these middle managers could be cross listed as a safety/civilian position. Almont Associates 13 Clerical Support The department is understaffed with regard to clerical support. Under the present organizational arrangement, Chief officers are committing the majority of their work day performing clerical functions. In addition to being non cost-effective, this shortage of clerical support has created major morale problems with the department chief officers. Additional clerical support should be assigned to Fire Prevention, Training and Operations. Training Division Staff resources allocated to the Training Division should be expanded to ensure maintenance of training quality through all components of fire department operations. At the time the study was conducted, with the exception of the Division Chief, no staff was available other than shift personnel to plan, conduct and coordinate departmental training. Fire Prevention Division In Fiscal year 1990/91 the Fire Prevention Division consisted of thirteen (13) personnel: Fire Marshal, two Typist Clerks, one Senior Inspector, seven Inspectors, one Arson Investigator and one Fire Prevention Engineer. For Fiscal year 1993/94 the division is authorized four (4) positions. At the present level of staffing it is impossible to provide adequate levels of fire code enforcement, plan checks, hazardous material inspections, public education, investigations, training and fee generation programs. We would recommend the addition of one inspector and a more aggressive approach to inspection fees, which are currently allowable. If additional revenues are collected, a second inspector should be considered next year. Almont Associates 14 Disaster Preparedness Office Staff assigned to the Disaster Preparedness Office is more than adequate to handle the City of San Bernardino disaster planning needs. In addition to the Disaster Preparedness Coordinator, the office is supported by a one-half Clerk III and a Disaster Preparedness Representative. 31 Existing Organizational Structure The organization of the department is a basic line and staff structure. The San Bernardino Fire Department is somewhat unique in that the Fire Prevention Division and the Disaster Preparedness Coordinator answer directly to the Fire Chief rather than reporting to a Deputy or Assistant Fire Chief. The Training Division, Suppression Division supervisors, Vehicle Maintenance Shop Supervisor and Communications Maintenance Shop Supervisor report directly to the Deputy Fire Chief. The Suppression Division consists of two firefighting battalions, supervised by six (6) Battalion Chiefs. (See attached San Bernardino Fire Department Organizational Chart, page 6) 31.1 Effectiveness of Lines of Authority and Reporting Relationships Under the present organizational structure the department is extremely fragmented. As stated earlier in this report, the Deputy Fire Chief's responsibilities for the department budget do not allow him time to provide direction, leadership and support to his immediate subordinates. The Operations and support services sections of the department therefore function with minimum direction. Based on the workloads of Chief Officers assigned to staff positions and the inability of the Fire Chief to assign Battalion Chiefs to work assignments other than emergency operations, the effectiveness and organizational integrity of the department is extremely weak. 3.2.2. Span of Control • Deputy Fire Chief.• Under the present structure the Deputy Fire Chief directly supervises one Division Fire Chief, six Battalion Chiefs, a Vehicle Maintenance Supervisor and a Radio Shop Technician. Under ideal conditions with a good Almont Associates 15 management plan in place and established-goals and objectives, the number of subordinates that the Deputy Chief is presently responsible for exceeds accepted span of control levels for one individual. • Fire Prevention Division Chief: Directly supervises one Fire Investigator, on-duty investigators, two Inspectors and one Clerk. This is below normal span of control levels. However, this division is extremely understaffed. Additional positions are necessary to handle inspections, investigations, public education, public information and plan checks. If this division were staffed at appropriate levels, the span of control would then be appropriate for the Chief Officer supervising this division. • Training Division Chief.• Directly supervises only one subordinate. He indirectly supervises three Captains assigned to Truck 1 at Fire Station 1, when they function as department training officers. Span of control exercised by this officer is below accepted normal standards. • Battalion Chiefs assigned to the Emergency Response Division directly supervise a minimum of five to seven Fire Captains. This is an acceptable span of control. 3.23. Proposed Organizational Structure The Project Team recommends that a structural re-organization be implemented in order to adequately supervise and coordinate department operations and functions. Three options are presented for consideration. Almont Associates 16 Option 1 (Exhibit 2, Organizational Chart on Page 19) Fire Chief's office should be supported by the addition of a civilian Administrative Analyst position, responsible for: budget, payroll, personnel, revenue programs, EEO, EAP, and grants. The department should be organized into three divisions each administered by an Assistant Fire Chief: (1) Code Administration Division: Disaster Preparedness; Fire Investigation; Code Enforcement; Public Education; Hazardous Materials Inspection and enforcement. (2) Support Services: Buildings and Grounds; Dispatch Services; Vehicle Maintenance. (3) Emergency Services Division: Emergency Operations; Training. Emergency Operations Section The Emergency Operations Section would consist of one battalion, with ten (10) fire stations, administered by a Battalion Chief on each of the three shifts. Recognizing that the elimination of one battalion would increase the span of control for the on duty Suppression Chief, it would be necessary to re-assign some of his/her responsibilities to station officers or civilian analyst. In order to provide adequate coverage during greater alarms and concurrent incidents it would be necessary to establish a Call Back Duty Roster for Chief Officers not assigned to suppression duty assignments. The Battalion Chief assigned to the Training Section would be supported by three (3) Captains assigned to Truck 1, Fire Station 1. It is recommended that a Training Committee be implemented to evaluate and establish Department training goals and objectives. Almont Associates 17 Table 2 Proposed Re-organization# 1 Allocation of Positions Administration Position Administration Code Admin. Support.Ser Emerg, Ser. Div. Tot, Chief 1 - - - 1 Admin Analyst 1 - - - 1 Assistant Chief - 1 1 1 3 Battalion Chief - - - 4 4 Disaster Coordinator - 1 - - 1 Shop Supervisor - - 1 - 1 Dispatch Supervisor - = 1 - 1 2 2 3 5 12 Financial Considerations Option #1 Positions Eliminated: Deputy Chief's position $82,968 per year plus $39,476 (47.58% fringe package) $122,444 Fire Marshal and Training Officer positions Fine Marshal salary$75,480,Fringe $35,913 $111,393 Training Officer salary$72,660, Fringe $34,571 $107,231 Two Battalion Chief positions salary$70,416 fringe $33,503 $207,838 TOTAL ANNUAL SAVINGS $548,906 New Positions: Assistant Chief(three positions) salary $75,480 fringe $35,913 $334,179 Administrative Assistant(1) salary$32,256 fringe$9,605 $41,861 Annual costs for the three Assistant Chiefs and Administrative Assistant positions: $376,040 Savings Option#1 without additional clerical support: $172,866 Recommendation: Hire two additional clerks, annual cost $62,344 Typist Clerk III (top step) salary $24,012 fringe $7,160 $31,172 (one would be assigned to Emergency Services, and one to Support Services) TOTAL SAVINGS OPTION#1 $110,522 *These savings could then be utilized to fund inspectors, or other improvements as noted later in the report. Almont Associates 18 LP � ]© (� �■ c � & � . u 2 / . i � � } - - } c §R 3 i �f CL k 3 k 4 Li _ $ _ � k Lrj � � } § b ° 3 2 � ■ J- 2 Option 2 (Organizational Chart, Exhibit 3 on Page 23) The Fire Chief's office would be supported by the addition of a civilian Administrative Assistant-position, responsible for: budget, payroll, personnel, revenue programs, EEO, EAP, and grants. Divide department into two divisions each administered by an Assistant Fire Chief: (1) Code Administration/Support Services Division: divided into four sections: Code Administration; Disaster Preparedness; Dispatch Services; Vehicle Maintenance. (2) Emergency Services Division: consisting of three sections: Training;Emergency Medical Services,North and South Emergency Response Districts. Code Administration/Support Services Division The Assistant Fire Chief responsible for this division would also assume the title of Fire Marshal. The Code Administration Section supervised by a Fire Captain, would consist of the following: Code Enforcement; Inspections; Public Education, Investigations and Hazardous Material Enforcement and Inspection. Emergency Services Division The Emergency Services Division administered by an Assistant Fire Chief with a span of control of eight (S) would consist of : (1) Training Section administered by a Battalion Chief, assigned to a forty (40) hour work week, responsible for developing and monitoring all department training. (2) EMS. A Certified Paramedic should be assigned to this section to assist with field EMS operations, attend EMS related meetings and function as Department EMS Liaison Officer. This is a 40 hour work week. (3) North and South Emergency Response Districts. Administration/Supervision of each district would be provided by a Battalion Chief on each of the three platoons. With the closure of fire station #10, the North and South Districts would each consist of five (5) fire Stations. This is an acceptable span of control for the Battalion Chiefs assigned to the Emergency Response battalions. It is recommended that a Battalion Chief be assigned to the Training Section. However, with the closure of one Fire Station and the need to reassign displaced personnel, the department should consider assigning a Captain to Training and a Certified Almont Associates 20 Paramedic to the EMS Section. Training would be supported by three (3) on-duty shift Captains assigned to Truck 1, Fire Station 1. It is recommended that a Training Committee be implemented to evaluate and establish department training goals and objectives. Table 3 Proposed Re-organization#2 Allocation of Positions Administration Position Administration Code Admin Emerg. Ser, Division Tot Chief 1 - - 1 Administrative Asst. 1 - - 1 Assistant Chief - 1 1 2 Battalion Chief - - 7 7 Fire Captain - 1 - 1 Disaster Coordinator - 1 - 1 Dispatch Supervisor - 1 - 1 Shop Supervisor - 1 = 1 2 5 8 15 Financial Considerations Option#2 Eliminated: Deputy Chief Position (Salary and Fringe) $122,444 Eliminated bonus for Battalion Chief assigned to training $2,244 ANNUAL SALARY REDUCTIONS: $124,668 Added: One (1) additional Assistant Fire Chief $111,393 One (1)Administrative Assistant $41,861 Annual Salary Increase $153,254 NET INCREASE $28,586 Recommendations: 1. With the closure of one fire station,transfer one Captain position to Code Enforcement and one Captain position to Training. Eliminate the Battalion Chief position assigned to Training. Savings: $103,919 2. Hire two (2) additional Typist Clerks: Annual Salaries: $62,344 Almont Associates 21 Summary: Eliminated Positions (Deputy Chief and Battalion Chief)- ($228,587) Additional(new)positions (Administrative Assistant,Assistant Fire Chief,and two Typist Clerk III's) - $215,598 NET SAVINGS $12,989 Almont Associates 22 1 I 1 I q 1 1 I v '� _ N � � ^I Y 1 1 I Y C c c c C Y u i 1 O 1 r c O O O O O u V. 1 1 q 1 U Y O ..� •-+ .•� ...I ••+ 1 1 •r 1 M r v M r u 1 p 1 I O 1 T L C O a 4 a a 1 1 1 •-� 1 [ M U « v M v « T { Ol 1 I J I •.r q Y L N N N N N C I 1 1 O 'r V •c n 1 •-� 1 1 H 1 •.Ci y Lj ►- r « c L I I O y = 1 1 1 N O I I 1 4 O 11 1 8, Y •' O L e ..4 V m L u V L N ++ V T C C 1 con 1` L L ^ v •L i1/ .r V�1 M q r«r Lr) Y a -W r«y Iv n r fr r o 1r 1� C C C C C V V p V m + 1 j 1 i O c O O O O r r r q r y C I l 1 l J 1 q e Y N N N N N C I I « • I I y W c O y L Y Y Y Y Y C 1 1 « v L L L L L •-� 1 W 1 q L L '-� •-1r -/ •-1 b 1 1 C L �• r C /�► O r L M O i I r� M O � O •.+ 2 0 0 1 t 1 « L NC � « + - - _ e m L'• .� L L Y L, O uu O •y L : M q r q N 11.1 q L ^ PC; T c 4 q O v L t/1 e � [. � L 0 y « o c y n ►� L 41 u o u ¢ c a U L O > L O N Y d Ll V r O. _ C L L L q Y 7 r v 4 •-+ N V/ .r Y s_ N q O N Y Y + • O O > v L O L! a Y n L N I` • r c c v N O c ^ q o o r c r q o 0 C O U Y q q V < v — v u U � M O O c a �' 0_ > L c O/ a VI > 7 O v L Y`c L u t o 91 r L v L 7 u 7 n U L CL Y V ` W CL Ir N N a t.7 ~ U l.! c W U S U L 0 Y •a FFFNIII r U r < L u -+ a a v O QI u a x o. e v v V L O 7 M G C U a + q m O a O "1 U C) Option#3 (Exhibit 3, Organizational Chart on page 26) A third option exists in that all of the positions mentioned that are needed for efficient operation could be added in addition to this current structure, i.e., leave station #10 open and provide for no reductions in personnel. This organizational chart is on page 26. The department should be organized into two divisions administered by an Assistant Fire Chief and one division administered by a civilian Administrative Analyst: (1) Code Administration Division: code enforcement;public education; hazardous materials inspection and enforcement; fire investigation; disaster preparedness; vehicle maintenance; building and grounds; dispatch services. (2) Administrative Division: planning and research; management information systems; budget. (3) Emergency Services Division: EMS; training;north and south emergency response districts. Emergency Operations Section The Emergency Operations Section would consist of two battalions with five fire stations assigned to the north district and six fire stations assigned to the south district. The Battalions would be administered by Battalion Chiefs assigned to three platoons. The Battalion Chief assigned to the training section would be supported by three Captains assigned to truck 1, fire station 1. The EMS section would be administered by a Captain/Paramedic supported by three Paramedics assigned to active Paramedic units. Almont Associates 24 Table I Propmod Us-nreanix&tion N 1 Allocation of Positions - - Administration Position Administrdti sn ��Adtrtin emerg r iv TQL Chief I Admin Analyst Assistant Chief - 1 1 2 Battalion Chief - _ 7 7 Disaster Coordinator - Shop Supervisor Dispatch Supervisor 2 4 8 14 Financial Considerations Positions Eliminated: Eliminated: Deputy Chief Position (Salary and Fringe) $122,444 One Inspector 37,056 salary 10,560 fringe Sal 218,616 Two Division Chiefs (Salary and Fringe) $218,b24 Total $388,684 New Positions: j Assistant Chief(two positions) salary$75,480 fringe $35,913 $222,786 j) Battaion Chief(Salary and Fringe) $109,312 Administrative Analyst(1) salary$32,256 fringe $9,605 $41,861 Captains (two positions) 54,948 salary 21,432 fringe $152,760 Two Clerk/Typists $62,344 Total $589,063 TOTAL INCREASE $20(1,379 Almont Associates 25 W n •--• N � n p � N H ~N N N N J ° 0. W W <J Y] ^ y w r i—C N m W 1� U W i S W 1J N FZ- u< u� zN � n W�+ V pNC b 1- Z N � W W Z N � � U J � W F- J W ` 7 I� J u C C mg= �o N C W + N U S o z f- f Y. N Ipl H � U N CCi rII u «< g o .ri 4d N y W v♦ ¢ O H r 2 U S 2 ^ J � w ° i N < N W Y W N N gc ¢, a WU ¢ 1 ¢ i jYZ 6 ¢ <¢ U r►W- � uN W= W N o r O° i 1¢Q- � 6 2 U IL \Z 2�< N J g <2 9E Z N < 1=0 2 ° y W u cc g +N � °o Establish Additional Mid-Management Positions Recognizing the external focus and demands placed on the Chief and to provide an internal capability for top management to handle long range planning management issues now assigned to one middle manager (Deputy Chief), additional middle managers (Assistant Fire Chief) should be considered. Establishment of this position would allow for the separation of responsibilities currently assigned to the Fire Chief and present Deputy Chief. Appointment of two or three Assistant Chiefs (as recommended in Organizational Options 1 & 2) and dividing the department into two or three divisions will then allow the Executive Staff (Fire Chief and Assistant Chiefs) time to focus on day-to-day operations, goal setting and decision malting. Modify Job Description for Battalion Chief The present job description for the Battalion Chiefs position restricts incumbents to supervising and directing only the work of firefighters, fire engineers and fire captains. In order to provide broader management of department functions and enable the Fuse Chief to assign management personnel to forty hour work assignments, the present Battalion Chief job description must be changed. This would require passing of an enactment resolution as required by Charter, Common Council approval and Civil Service action. It is recommended that the present Battalion Chief job description be amended to state that Battalion Chiefs, at the discretion of the Fire Chief may be assigned as a Bureau/Section supervisor. Where, under general supervision, administers and supervises the activities of a department bureau or section; plans, organizes, coordinates and directs effective fire inspection, suppression, training, communications and equipment maintenance; and performs other related work as required. 3.3 Organizational Communications Typical of most line and staff organizations, communication within the San Bernardino Fire Department is perceived to be top-down from the administration. Interviews with a cross section of department personnel identified a break down in inter- Almont Associates 27 departmental communications as a primary cause contributing to any potential lowering of morale within the department. 3.3.1 How the Department Communicates Inter-departmental communications are primarily conducted by written memo, procedure manual, meetings, open door policy, rumor or hearsay. Electronic mail to administrative sites is limited, since only a few fire stations have a computer system and are on-line. In addition, there has been no formal training provided to personnel in the use of computers as a means of communication. Recommendation: An implementation program needs to be developed to address horizontal, vertical and external communications for the department. 3.3.2 Vertical Communications Within the Department Department policy and procedures clearly define the para-military structure within the department. With the exception of information exchanged through utilization of the Fire Chief's hot line, individuals are required to follow the chain of command in all vertical and written communications. Vertical communications are primarily handled by the use of inter-departmental written memos and telephone contact utilizing the chain of command. 33.3 Horizontal Communications Within the Department Information from shift to shift is communicated through written entries in station journals, face to face contact, written memos, telephone contacts and limited use of electronic mail. 33.4 Communications Outside of the Department Through the use of the San Bernardino Fire Commission, Fire Chief's Association and committees, the Fire Chief has the forum to communicate fire department issues and Almont Associates 28 concerns to members of the Commission, which in turn, can communicate the needs of the department to their respective council districts and the community. Public Information Officer Several members of the department volunteer their off-time assisting as Public Information Officers. They coordinate their activities through the office of the Fire Chief. For the short time this system has been in place, it appears to be working well. Every effort should be made to support and continue the program. 3.4 Work Load And Call Load Levels 3.4.1 Required Staffing Levels for Each Functional Positions Outside of Administration Fire Suppression For the most part staffing appears to be adequate and meets standard acceptable staffing patterns, the exception being truck company staffing. When making recommendations for staffing truck companies, the following should be taken into consideration: 1. Target hazards 2. Duties normally assigned to truck personnel 3. Type of apparatus, i.e. Tillered, quint, etc. The Department's present practice of staffing the truck company at station one with three fire personnel should be modified to reflect minimum staffing of four, when possible. Cost Neutral can be accomplished through reassignment of personnel (See Section 7). Almont Associates 29 Emergency Medical Service Delivery The delivery of this service in San Bernardino appears to be effective with some exceptions. The most -notable exception is the lack of EMS transportation. The recommended staffing levels for paramedic engine companies is four personnel, a minimum of two certified as paramedics. Fire Prevention Required staffing for fire prevention varies and is dependent on the age of the community, construction, special events, public education and other factors. The present staffing levels related to this important function are insufficient for the City of San Bernardino (See Section 3.1.1). A complete and comprehensive reorganization is indicated and discussed further in Section 3.4.2. The staffing required for a successful engine company inspection program is adequate. Training The training division requires an adequate number of personnel to deliver quality training programs that encompass a variety of skills. The present makeup of this division does not meet this requirement (See Section 3.1.1). Department Mechanical Shop Given the call load and age of the City's fleet of vehicles, the expected level of staffing in this critical support function would normally be one supervisor, two fully qualified mechanics and at a minimum one helper. RECOMMENDATION Increase number of personnel to the authorized strength. Management, Support and Clerical (See Section 3.0) Almont Associates 30 3.4.2 Proposed Changes in Management, Operations and/or Organization for Increased Effectiveness Comprehensive Move Up and Cover Program Given the number and type of calls experienced by the City of San Bernardino, a Move Up and Cover Program or S.O.P. is critical to service delivery so as to insure appropriate medical and fire protection for the City of San Bernardino when City units are assisting outside agencies. During our review of this procedure we found some provision for move up, however, a comprehensive written procedure that would guide dispatchers and others did not exist. RECOMMENDATION Develop and implement a comprehensive move up and cover procedure that includes provisions for: • structure fires • emergency medical • wildland/vegetation fires • earthquake • flood • mutual aid requests The procedure developed should include automatic thresholds that can be programmed into the Department's computer-aided dispatch. Once the threshold is reached, dispatch would advise the duty chief and implement the procedures dictated by the procedure. Fire Prevention/Disaster Preparedness During the project team's research it became apparent that several areas, not only within the division, but within the City had similar and/or overlapping duties, inadequate coordination and a lack of training is contributing to unnecessary duplication and Almont Associates 31 inefficiency. One example given was certificates of occupancies being issued by the City's Building Department absent of Fire Department sign-off. Another example cited was in the area of public education, even though disaster preparedness and fire prevention go hand in hand. Presently the Department does not coordinate these critical presentations into organized comprehensive programs. RECOMMENDATIONS 1. Develop a comprehensive Life and Building Safety Program. Under this recommendation ALL functions related to fire prevention, public education (including disaster preparedness), building construction, code enforcement and fire investigations would be contained in one plan. Critical personnel such as inspectors, plan checkers and public - educators would be cross-trained in the multiple aspects of this comprehensive new division. Projected Results: Standardized code interpretation as a result of the coordinated systems approach. An example of this would be construction inspections. Cross training would result in the inspectors being able to provide multiple inspections during each visit, such as fire sprinkler, framing, electrical and alarm system. Not only is the inspector's time used more efficiently but the consumer receives an extremely comprehensive inspection. Public education would combine disaster preparedness, fire prevention and other information into one coordinated program rather than several splinter programs. Cost Neutral 2. Develop and implement a Comprehensive Fee Schedule. The existing Fee Program within the Fire Prevention Division does not appear to be effective. Programs designed to be fee-for-service should recover up to 100% of the cost of providing services above the baseline. The program in place in San Bernardino does not appear to embrace this concept and therefore is marginally effective. Almont Associates 32 Identify all potential fees related to the reorganized division, i.e., inspections, plan checks,permit issuance, special inspections, special use, special standby services and other related fees. Once this list has been developed, a task force from within the division should identify the time needed to complete the service related to the fee. Once this is done, the cost of providing the service should be calculated to include clerical support, personnel time, cost of facilities use, vehicle support and benefits. Once these costs have been determined the appropriate fee can be assigned to the service and presented for adoption. 3. Update the Engine Company Inspection Program. The current engine company inspection program consists of the engine companies inspecting B-2s and some R-1s. The individual companies are responsible for maintaining their own records with minimal fire prevention division involvement with the exception of some training. This type of system does not encourage quality control and actually lends itself to neglect as is evidenced by a review of statistics provided by the fire prevention division. Review of the statistics indicate considerable fluctuation between the number of reported inspections done by the individual companies. During our review, information on the total number of inspectable occupancies had to be hand-calculated by each station which reinforced the review team's concern for quality in the present program. RECOMMENDATION Develop a comprehensive computerized inspection database that breaks the engine company inspections into monthly assignments. A system of this type should have a cross check function that can access business license and certificate of occupancy information. Additionally, a quality control function must be incorporated that will confirm effectiveness of fire prevention inspections and appropriateness of the type of training being received by the engine companies. Projected Results: An effective company inspection program that contains the necessary checks and balances to enable the department to adjust the program as necessary. A program of this type can only enhance the level of life safety in the community. Almont Associates 33 Department Mechanical Shop The Fire Department depends on this division to maintain all rolling equipment assigned to the Department. During the project team's visits to the facility and interview of assigned personnel, we found a clean shop with motivated staff facing challenges of monumental proportions. Practices such as budget development absent of significant input of the supervisor and, using apparatus engineers for mechanics helpers when their units were down for maintenance seemed counterproductive. However, with the lack of maintenance workers this practice is understandable. Additionally, some beneficial hands- on knowledge is gained. RECOMMENDATIONS 1. Empower the shop supervisor with budget preparation. This will result in critical input from the person responsible for the efficient operation of the shop. 2. Discontinue the practice of utilizing the apparatus operator (Engineer/Driver) as a mechanics helper. This practice deprives the City of the availability of resources. 3. Maintain the reserve apparatus in a condition that will allow crews to switch over to a reserve piece when their primary unit is in the shop for service. 4. Restore the level of staffing to the shop as indicated in the Organization chart,page 6. Final Comments One of the difficulties the Audit Team had in evaluating/recommending was the lack of a master plan for the department delineating benchmarks of service provision. Without question the provision of EMS transportation would provide for better fire protection and improved EMS service delivery. This audit is provided without EMS transportation in place. If that becomes a reality and service provision changes, there needs to be changes made in the organization. Almont Associates 34 4.0 DEPARTMENTAL POLICIES AND PROCEDURES Currently the Fire Department Policies and Procedures are contained in three (3) separate books. Book 1, titled Operations, contains: Manual of Operations; Fire Department Organization; General Administration Policies; Personnel Policies and Procedures; Records and Reports; Book 2, titled Routine Operations, contains: Apparatus Operations; Equipment Operations; Public Education; Fire Prevention; Pre-Fire Planning, Safety; Book 3, titled Emergency Operation, contains: Alarms and response procedures; Fire Company Operations; Paramedic Operations; Command Operations; Firefighting; Medical Emergencies; Electrical Emergencies; Rescue Operations; Transportation Emergencies; Hazardous Materials Incidents; Major Emergency Operations; Law Enforcement Liaison; Public Assistance Operations. 4.1 Efficient Book 1 has just recently been issued to all fine stations and administrative sites. With the issuance of Book 1 the department has implemented a new process for Station Officers and Section Supervisors to record and code all new changes and directives to the department policies and procedures manuals. At the time of this audit, the evaluation team was unable to determine if and how this new process is working. Recommendations: Book 1, Annual Inspection - Code 1-1V-2, Chapter 5, be altered to include verification of valid California Driver's License. 41 Comprehensive Book 1 appears to be a document within an acceptable format. Books 2 and 3 have not been altered nor updated since July 1, 1984. The majority of the policies and procedures contained in Books 2 and 3 must be considered outdated and obsolete. Due to other priorities, the department has been unable to provide staff to complete rewrites of Books 2 and 3. The evaluation team recommends that the Chief appoint a committee to Almont Associates 35 immediately commence rewriting the Routine Operations and Emergency Operations manuals. 4.3 Consistency and Application Considering books 2 and 3 are ten years old, it is impossible to determine if personnel are adhering to policies that are contained within. Changes to routine and emergency operational procedures have been informally implemented and updated through the use of department memos. Books 2 and 3 must be rewritten in the format of Book 1 and follow the same procedure for insertion of the policies. The use of department memos to change a department procedure should only be used as an interim step pending the rewrite of the policy or procedure being added,changed or deleted. Side Notes: 1. The Audit Team noticed on two occasions firefighters standing up behind the cab on moving apparatus. This is a totally unsafe practice and must not be permitted. Safety policies need to be instituted disallowing such practices as well as other practices that could result in serious injury to employees or to the public. The policies should also include practices that could result in damage to equipment or property belonging to the City or a citizen. The policies need to clearly place the responsibility for enforcement on the Company Officer i.e., more severe discipline should be issued to the Company Officer when such practice is noticed. 2. In order to limit the City's liability, provide for a safe environment for employees, and provide the high level of service that citizens expect, the department needs to develop a comprehensive drug and alcohol use policy complete with training, rehabilitation, random checks, and discipline. 3. A comprehensive sick leave abuse policy needs to be developed that includes fitness for duty evaluations. 4.4 Goal Development In February of 1993, the management staff of the San Bernardino Fire Department participated in a Team Building workshop presented by Consultant Edward C. Caprilian, Ph.D. During that session a strategic plan was prepared for the San Bernardino Fire Almont Associates 36 Department representing the period of March 1, 1993 through June 30, 1994. The plan was developed by the Battalion/Division Chiefs, the Disaster Preparedness Coordinator, the Deputy Fire Chief and the Fire Chief. Since this was the first strategic plan developed by the department, it reflected a strong commitment and support to team building and planning efforts.A mission statement was developed to meet the organizational needs until such time as it can be reviewed and evaluated to meet the purpose of the organization. MISSION STATEMENT Often the purpose of an organization will be formalized in a statement of purpose or mission statement. The purpose of a fire department in general terms, is to provide public service. The level and kinds of service provided vary considerably among communities. Factors that influence the overall purpose include the geographic and demographic characteristics of the area served, the relationship and availability of services from other agencies and the willingness and ability of a community to finance and support fire protection services. A mission statement describes why a department exists and how one knows whether it accomplishes its generally intended purpose. Key service areas generally define where time, money and other resources are to be invested, and they should relate directly to the departmental mission. A successful fire department has an organizational culture founded on well thought out values. Department values must reflect the organizations mission statement. Employees tend to feel psychological ownership of corporate values when they have been involved in the selection of those values. Almont Associates 37 GOALS Goals are developed to ensure that the organizational purposes are met. In addition, goals provide the organization with internal direction which facilitates both day to day management and long-term planning. Goals must be consistent with the general mission of the department, key service areas in which particular results are expected, and contain indicators of accomplishment. Goals should also be based on values, and should take on a sense of mission where they are consistent with not only one's deeply held beliefs, but with the values of the department as well. It is essential that the department head allow staff members to shape group values and assist in the development of departmental goals. One of the most effective ways to build a sense of employee pride, teamwork and motivation is for supervisors to seek advice, suggestions and information from employees concerning ways in which work should be performed and problems solved. Employee involvement, in many aspects of an organization's operations, is the new reality of the 1990's. As stated earlier, the San Bernardino Fine Department participated in a team building workshop in early 1993 and developed a strategic plan in which the department did not place a high priority for implementation nor did they seriously believe the plan was meeting departmental needs. In interviewing department staff, some felt they were too busy with day-today activities to be able to address the plan and that the team building workshop was not all they expected it to be. Regardless, it is evident that there are no goals and objectives developed within the department. It is recommended that the fire department develop clear goals and objectives with employee input and involvement in as many areas as possible. It is also recommended that a strong commitment and effort be put forth from all Chief Officers in the preparation of the goals. It is further recommended that after establishing goals and objectives, the department needs to develop an action plan based on the information gleaned from the definition of identity, values and goals, coupled with the effort they are willing to make to realize their intended results. The department, of course, needs to look at their resources. Almont Associates 38 The department should not define an action plan that they are unable to implement because of inadequate time or resources. Almont Associates 39 5.0 MANAGERIAL EFFECTIVENESS 5.1 Are Management Practices and Procedures Effective in Daily Operations As identified elsewhere in this report, management personnel as a whole tend to be managing with minimal direction from the available executive staff. Lacking established department goals and objectives, individual managers are operating in a reactive environment. On a daily/routine basis, management personnel deal with situations as they develop and deal with these as they feel appropriate. 51 Mechanism in Place to Insure Compliance with Policies and Procedures The only mechanism in place is the day to day performance of department personnel during routine and emergency operations and through evaluation by their superior officers.- 5.2.1 Are Management Responsibilities Assigned at the Lowest Level The Deputy Chief spends the majority of his work day involved in routine budget projects that should be delegated to the Accounting Clerk. The Fire Marshal and Training Officer because of limited staff support are involved in routine functions that should be delegated to clerical and subordinate staff. Battalion Chiefs assigned to the Operations Division are performing daily tasks that could be handled by clerical support personnel, if available. Battalion Chiefs should delegate routine functions such as time keeping, taking phone messages, handling time off requests,etc., to station officers. 5.3 Management Clear on Their Assigned Duties and Responsibilities Management personnel presently are assigned additional duties and responsibilities to assist with the staff function within the department. Most Chief Officers state that due to additional assignments they have difficulty in completing their primary responsibilities. They seem to be inundated with what they perceive to be mundane clerical work. They feel they should be in the field overseeing the District rather than dealing with the Almont Associates 40 0 ancillary office needs. To some extent management is unclear as to their job responsibilities and assigned duties. It was noted in the San Bernardino City Fire Department job description for Battalion Chief that the representative duties refer mainly to fire suppression, fire prevention, and training. There is little written concerning responsibilities in hazardous materials,EMS,civil disturbance, disaster control, and 40 hour work week assignment for performing staff functions. Many fire officers have spent most of their fire careers in a physical world of fighting fire, providing EMS, and reacting to emergencies. When fire officers are promoted to management positions and are asked to oversee programs or to complete complex projects, their background provides them with only a few tools to accomplish these tasks. We cannot overemphasize the importance of preparing personnel within each grade with the skills and knowledge necessary to meet the demands of the fire service. It is recommended that a Time Management System be implemented with training for all Chief Officers,thus assisting personnel in documenting and controlling their time and duties. Chief Officers need to schedule their time by setting up blocks of time to work on their procedures. They must learn to delegate more in those areas that can be handled by subordinates, leaving time for priority areas. It is further recommended that the job description for Chief Officers be revised and amended to reflect presently performed responsibilities, such as 40 hour work week assignments for performing staff functions, knowledge of hazardous materials, EMS, civil disturbance preparedness,development of disaster control plans. etc.. 53.1 Appropriateness and Adequacy of the Provisions for: 53.1.1 Performance Evaluations Formal evaluations encourage the creation of reasonable performance standards so that both the supervisor and employee are aware of the quality and quantity of work which is considered an "acceptable performance". The fact that an employee knows where he or she stands and is given an opportunity to discuss performance with their supervisor can be a major factor in developing and improving morale. Employee performance evaluations Almont Associates 41 actively involve supervisors with subordinates and is the backbone of two-way communications. The result can be increased cooperation and understanding which usually lead to improved services with the work unit. The present performance appraisal system used by the San Bernardino Fire Department is a Graphic Rating Scales with provisions made for written comments by the rater. These systems are widely used for a broad range of jobs and are more consistent than essay appraisals. A major weakness associated with the Graphic rating scale is that they are based on ambiguous terms. Supervisors must guard against being too lenient and allowing judgments on one element to influence all others. Graphic rating systems are highly subjective and offer little in the way of feedback and training. Once an employee is hired, they must be continuously evaluated and given feedback about performance. The San Bernardino Fire Department personnel are presently evaluated once yearly. In order to ensure good communications between employees and supervisors, appropriate recognition, and accurate information on performance appraisals, it is recommended that all supervisors be adequately trained in the use of the appraisal system on an annual basis. It is further recommended that the employee performance evaluations be prepared at least twice per year. Permanent employees should be evaluated on their hire date and six months thereafter. An alternative time frame of May and November is also an acceptable standard used in the fire service. The San Bernardino Evaluation Instruction Booklet is a model evaluation system recommended by the International Association of Chiefs of Police and appears appropriate for both police officers and civilians. It addresses the following major areas of concern: 1. Instruction 2. Factor definitions 3. Supervisory factors 4. The evaluation interview 5. Instructions for completing the evaluation form Almont Associates 42 It also serves as an adequate instructional tool to assist the supervisor in preparation and presentation of employee evaluation reports. Females as well as males may be called upon to utilize the booklet to prepare their respective reports. In order to avoid unwarranted controversy and accusations of gender bias, it is recommended that the Performance Evaluation Instructional Booklet be revised throughout to use non-gender specific terms. The San Bernardino Evaluation Report has a check off box with a small space allotted for comments for employees who wish to discuss the report with the supervisor. It is recommended that a prescribed form be developed with corresponding guidelines for employees who disagree with the performance evaluation to submit written comments. The form should be attached to the evaluation as part of the overall process. even though the MOV provides procedures for comment. 53.1.2 Promotions The testing process for promotions within the San Bernardino Fire Department is in accordance with the Civil Service Rules and Regulations for the classified service developed January 21, 1983. Personnel are determined eligible and tested by the City's civil service Chief Examiner or staff. Those candidates accomplishing 70% or better are considered to have passed and are placed on a list in alphabetical order and sent to the Fire Chief. The department prepares an additional evaluation for those on the list, usually a modified assessment center for supervising personnel. A trained assessment team from outside the department is utilized to score the candidates according to performance and compile the test scores, scores being placed from highest to lowest. The Chief and Deputy Chief meet with raters for additional insight on the various applicants. After discussion the assessment team and the Fire Chief will look at the list for natural breaks in the scores for what is termed"Banding" of the list into bands (groups) A, B and C. The Chief can consider the candidates within these three bands for promotions. For the position of Captain and below, the Deputy and Battalion Chiefs meet and select the Almont Associates 43 person to be promoted through a process of consensus decision making. The Chief and Deputy Chief make the selection for the position of Battalion Chief. Assessment centers have been used for quite some time by the fire service. The assessment center requires a candidate to demonstrate certain abilities through the use of problem solving exercises, role playing, and other simulated exercises. Each candidate is observed by a trained assessment team and scored according to performance. Many feel that the assessment center is the most realistic means of determining a candidate's suitability for a particular position, although they are seldom used for positions at levels lower than middle management. Once a list has been established, the usual practice in most cities is to fill vacancies from the top of the promotion list, except when the department head specifies in writing valid reasons for passing over an individual. Such reasons might be serious disciplinary problems, frequent bad judgment, a record of conflict with other employees, or other major personality problems. It is recommended that the promotional system of "banding" be discontinued and that the fire department adopt the City Civil Service rule of seven for selection of candidates. This would give the appearance of conforming to nationally recognized standards and not continue to perpetuate the view that the department head is discriminating or biased (collusion) in the selection process. The department head continues to have the capabilities of selecting within the list as far down as seventh for one opening available. It is the probationary period that should be regarded as part of the testing process and should be utilized for closely observing the employee's work, for securing the most effective employees, and adjustment of a new employee to his/her position and for releasing any probationary employee whose performance does not meet the department's required standards of the work. It is further recommended that educational and training programs be prepared and made available to department personnel to acquire the skills and knowledge necessary to meet the job performance requirements set forth for each grade prior to eligibility for testing. It is also recommended that written exams for promotion be developed from a select number of books, educational programs and resources, and that the department Almont Associates 44 publish a bibliography and resource guide of the materials utilized and made available to department personnel six months prior to the testing process. 5.3.1.3 Transfers The department's present policy on transfers provides written guidelines to be utilized when personnel bid for vacant positions. This information can be found in the recently issued Book One Operations Manual, Chapter V code 1-V-3. It leads one to believe that the only consideration for transfers within the department is to utilize the bid system as outlined. Memorandum and verbal policy have been used to address other factors to be considered when transferring personnel. During staff interviews it was stated that lock- 2=cannot be transferred. Lockouts are specialized personnel assigned to the station #11 Hazardous Materials Unit and the two truck company assignments. The advantage in having an operations manual containing personnel policies and procedures is to supplement the rules and regulations with more detail in specific areas and to assist members in functioning within the general philosophy of the existing administration. The appropriateness of centralizing guidelines of specific issues cannot be overstated. It is recommended that Book One chapter V, code 1-V-3 include additional factors as determined by management, which should be taken into consideration when transferring department personnel. The assignment of available personnel to positions provided in the budgeted organizational structure are normally the direct responsibility of the fire department management, although certain assignments are frequently governed by work contract agreements. The efficiency of a department depends upon the proper placement of personnel and at times members being transferred are not aware of all factors taken into consideration. Following are some factor considerations: Almont Associates 45 i 1. Administrative factors to be considered: • The filling of vacancies caused by transfers, retirements, and new companies going into service. • The assignment to the field of a new class of probationary firefighters. • The balancing of numerical strength. • The balancing of experience. 2. Personnel factors to be considered: • Special abilities, whereby a member may be transferred to an assignment where their ability may be more fully utilized. (Should be discussed with member) • A transfer may be necessary for the correction/rehabilitation of a member. (Should be discussed with the member) • To avert or correct a personality clash between members. • To assign a member who is presently on a promotional list to an assignment where he/she may be used regularly in an acting capacity prior to being appointed. • The assignment of a member for substance rehabilitation. • The factors of special services, attitude and length of service should be reviewed carefully from the administrative standpoint. 3. Personnel reasons (members request) to be considered: • The desire for broader experience, i.e. working in a different type of company or special duty assignment. • A personality clash with another member. • A personal or family problem. 4. Considerations which determine what action should be taken on transfer request: • The evaluation in light of administrative needs. • The immediacy of need of the individual. • The seniority of the member, however, it should be considered along with the balancing of numerical strength. In any event an automatic practice of allowing annual transfers based on seniority should be discontinued. • The date of submission of the request. All other factors being equal, the member submitting the request first should be considered first. Almont Associates 46 • The needs of the department and the wants-of the individual should be considered before any action is taken. However, where there is conflict, the interest of the department must be the deciding factor. 5. Notification: • All parties involved in a transfer should be notified prior to the time of the transfer for their input. • When a member of the department is assigned to a position for probationary evaluation, the members should remain in that assignment for the length of probation unless there are extraordinary circumstances. However, if for the evaluation a different setting is needed, the transfer should be approved by the Division Chief and the reasons explained to the employee. There should be no transfers between shifts of probationary employees. 5.3.1.4 Discipline Rules and standards are necessary for the orderly operation of departmental business and to insure that everyone does their share and has an equal opportunity for success. Generally,the standards and rules governing the San Bernardino Fire Department employee behavior are found in the City Charter, City Ordinances, City Administrative Directives and Departmental Rules and Regulations. Additionally, some standards of conduct are so basic, employees however reasonable should know that certain behavior, regardless of whether it is in writing, is not permitted. Maintenance of such rules and standards requires discipline when violations occur. It is noted that when corrective action is required, the discipline given is dependent upon all the facts and circumstances relevant to the particular incident. The fundamental objective of good administration is to promote high morale among department members by providing good working relationships, enforcing personnel policy, opportunity for advancement, and consideration for the member's welfare. Primary emphasis should be placed on preventing situations requiring disciplinary action. But when a supervisory officer determines that disciplinary action is necessary, the supervisor should inform the member concerned of the reasons which justify, the action. The San Bernardino Fire Department in Book One, 1-V-13 has recently included for distribution disciplinary policies, guidelines and procedures as they relate to the fire Almont Associates 47 department. As of the time of our visit the policies and guidelines were incomplete and it was noted that only one page of what was supposed to be four were in the manual. The only other area which refers to discipline is on page 23 rule 513 of the civil service rules and regulations and these refer to section 254-256 of the charter for additional guidance. Supervisors and managers are responsible for resolving employee problems and when necessary, taking corrective actions. Such actions may include oral reprimand, written reprimand, recommending withholding or delaying merit increases, work improvement programs, etc., or a recommendation of more severe disciplinary action. When recommending disciplinary action, the supervisor must consider circumstances carefully. It is recommended that the fire department compile all City rules and standards relative to disciplinary action and place within the manual (Book One) a standard written source for departmental policies and procedures. It is further recommended that the fire department take on the task of establishing departmental rules and regulations and should include sections such as: general department service, individual duties, conduct on duty, general conduct, general policy and discipline. These rules and regulations cannot, nor are they expected to provide a solution to every question or problem which may arise. This policy's intent should be to ensure that equitable penalties are imposed and that comparable action is taken in comparable cases. The validity of the developed rules and regulations policy should be determined by formal opinion of the City Attorney and authorized by the Civil Service Commission and Mayor/Council. The designated personnel officer should be the controlling officer for the rules and regulations and should be responsible for the distribution of the manual, maintaining a record of location and publishing revisions or additions. It should be the responsibility of all members to familiarize themselves with and conform to the policies, regulations and procedures contained within the manual. Almont Associates can assist in the direction and development of such a policy. Almont Associates 48 . o 53.15 Termination In reviewing the manuals and civil service rules and regulations for adequate provision to cover termination procedures, it is noted that very little if anything is stated to assist management in commencing a termination proceeding against an employee. In interviewing department staff, many stated that they are unclear on the process for terminating personnel. Some chief officers have attended classes given by the City Attorney's office on the proper procedure for filling out disciplinary forms. Noted was an inter-office memorandum dated July 17, 1990, addressed to all department/division heads from the City Attorney notifying them that the Senior Assistant City Attorney will represent the fire department in civil service termination hearings. Attached to the memorandum was a civil service hearing format to be used as a guideline, even though the City Attorney's office will always represent the department at the hearings. Also attached was a copy of the current civil service rules. As of the time of our visit, this was the extent of the information or documents made available to us for review with reference to termination of employees. On the advice of the City Attorney's office, employees may not be disciplined until they have had the opportunity to be heard before the Civil Service Board or have a chance to appeal the intended action. If it is necessary to take immediate action, the employee may be sent home with pay until the requirement is satisfied. The department is to contact its representative in the City Attorney's office for further advice on individual cases. It is recommended that the department develop a directive which establishes procedures for: a) pre-action review by the City Attorney of certain disciplinary actions, b) pre-discharge review process, and, c) flow chart depicting the step-by-step procedures for taking action (termination) against a member. In this litigious society of ours, it is very important that all documentation be accurate and that each step is methodically covered in the event a member's employment is terminated. It is also imperative that all department members understand what "due process"is available to them. Almont Associates 49 6.0 BUDGET AND FINANCIAL PRACTICES 6.1 Fiscal Management Practices A critical step in our evaluation of the fire department's fiscal management practices involved benchmarking current fire department practices with those used by other comparable fire departments in the state. The purpose of this activity was to understand what policies and procedures are being successfully employed in comparable environments, and analyze their applicability to the City of San Bernardino Fire Department. Current fire department practices were obtained through interviews conducted with Deputy Fire Chief Daniel Dickerson, Battalion Chief Ed Brown, and Chris Helms. We conducted telephone interviews and/or obtained information regarding budget practices with representatives of the following Cities: • Anaheim • Escondido • Glendale • La Verne • San Jose The findings of the benchmarking analysis are summarized in the sections below. 6.1.1 Budget Development and Preparation In recent fiscal years each of the five fire departments interviewed for purposes of benchmarking has been subject to flat or reduced operating budgets. These budget constraints have resulted in deferred equipment purchases and in some cases the elimination of certain positions. Procedures followed in preparing the budget for the cities were similar to those for the City of San Bernardino Fire Department. Generally, on or about the beginning of each calendar year, Fire Captains are provided an opportunity to submit items to their Battalion or Division Chief for inclusion in the operating budget. Each Battalion or Division Chief is typically assigned responsibility for a specific area of the budget. Upon completion of each Battalion Chief's Almont Associates 50 budget, senior fire department personnel meet to reach consensus on the final budget to be submitted to the City Council. Each of the cities surveyed also prepares a separate five year capital improvement plan (CIP). The CIP involves scheduling and budgeting for new fire stations, replacement of vehicles and equipment, etc. It is strongly recommended that the City of San Bernardino establish a five year CIP and review and revise it annually. In conjunction with developing a five year CIP, the City may also wish to evaluate the implementation of an automated vehicle and apparatus maintenance system. 6.1.2 Budget Management Tools available and procedures followed to manage the budget vary with each of the cities surveyed. All of the cities surveyed utilize a combination of manual and computer reporting systems to track the expenditure of budgeted funds. Generally the expenditure of funds other than for payroll costs is accomplished through the use of purchase orders. Purchase orders are typically reviewed and approved by senior department personnel and forwarded to the purchasing or finance department for final approval. The ability to review previous expenditures and determine the eligibility of any new purchases can often be difficult due to limited access to central computing resources. For example, the City of Glendale Fire Department does not have access to real time data via computer. At best, information is updated at month end. Consequently, the Glendale Fire Department has resorted to developing its own internal tracking system which makes use of personal computers and manual expenditure logs. Other fire departments, such as the City of San Jose and the City of Escondido Fire Department have on-line access to real time or near real time financial statements and other data. The City of San Bernardino does not have on-line access to the central City computer resources. The fire department receives month end reports which indicate by account the amount originally budgeted, the amount drawn and the amount remaining. To provide more timely information, the fire department is planning to implement a parallel budget monitoring system on a personal computer using the software package "Quicken". The fire department should be commended for these efforts. It is also recommended that Almont Associates 51 the City evaluate the options available to provide the fire department with on-line real time access to budget data. Another area of the budget which may benefit from enhanced monitoring is the use of fuel. Fuel costs are often a substantial component of the fire department budget and without proper control, abuses can occur. Currently, fuel is obtained through an on-site fuel tank. In order to refuel a vehicle, the pump must be unlocked by key, a fuel form completed and the miles driven logged. However, the pump is not accurately calibrated and therefore the amount of fuel used cannot accurately be monitored. At a minimum, the pump should be properly calibrated. The department should explore options to automate the dispensing of fuel. The City of Escondido, for example, utilizes a credit card system to authorize and monitor the use of fuel. 6.1.3 Cost Recovery All fire departments included within the comparative assessment survey utilize one or more mechanisms to recover costs. Among the methods utilized by the City of San Bernardino Fire Department are paramedic subscription services and hazardous materials spills programs. It is recommended that the department evaluate the implementation of fees for false alarms generated by alarm systems. The City and the fire department are also encouraged to evaluate programs designed to finance fire protection equipment and services such as the fire suppression assessments authorized under section 50078 of the Government Code and the Mello-Roos Community Facilities Act. Finally, as mentioned on pages 10 and 28, fine prevention fees which can fund much needed prevention improvements are not being utilized. 61 Leave Time 6.2.1 Vacation The current practice of allowing six (6) suppression positions off on vacation, holiday or other leave, regardless of rank does not allow for control over the rank positions off such that six Captains can be off at one time. There needs to be much more control over the management of leave time off. Note: Since the initial audit was conducted a constant staffing provision was negotiated which should account for time off coverage. Almont Associates 52 However, it will take several years before constant staffing is achieved and all time off needs to be closely monitored. 6.2.2 Sick A review of the use of sick leave revealed what appeared to be an inordinate amount of sick leave usage on average per position in suppression. A closer examination revealed that the usage was concentrated with a few people in each of the ranks. When asked for a sick leave policy which should be utilized to control sick leave alone the team was told that a new policy was recently developed. Almont Associates would be willing to provide a critique of that policy and accompanying suggestions. 6.2.3 Overtime There are two types of overtime that are utilized by the department - Fair Labor Standards Act (FLSA) and overtime incurred as a result of leave time - sick, vacation, holiday, injury, etc.The department pays three (3) hours of overtime in excess of 53 hours worked in the suppression division as required by federal law. The remaining hours of overtime can be reduced by policy changes mentioned above. 6.2.4 Other Leave Time Informal shift trading practices can lead to abuses as well. Other fire departments have documented cases where shift trades were not always repaid. This results in liability because the employee working the traded shift was neither compensated for the time worked or through the other employee holding up their end of the trade. The fire department's shift trading practices require that a written request for the trade be signed by both parties. This provides a written record of the trade which helps eliminate the situation described above. As with all of the departments surveyed, the City of San Bernardino Fire Department manually tracks leave time. The daily roll call reflects vacation, holiday, sick, jury duty, and other leave time. Overtime is tracked separately through the Battalion Chief's overtime roster which is reconciled to the daily roll call. Such manual reporting Almont Associates 53 systems typically lend themselves to clerical and other errors. To test the accuracy of the system in place we attempted to reconcile the overtime and sick hours on the overtime roster and sick leave log with data provided from the City's management information systems department. We data sampled for several pay periods in the previous fiscal year. Several discrepancies arose when attempting to compare the two sources of data. Although a full reconciliation of leave time is beyond the scope of this study, the brief analysis conducted illustrates the potential for error. It is recommended that the City automate the time reporting and recording process. At least one fire department surveyed has implemented a computer aided dispatching system in which laptop computers were utilized on every vehicle and in every station to log in the names of the crew working a particular shift. Abnont Associates 54 7.0 FIRE STATION LOCATION 7.1 Fire Station Location Premises As part of the overall audit an analysis was made of the location and workload of the fire stations. The incomplete data that was available for 1991 through 1993 and the first six months of 1994 revealed the least busy station to be #5 located at 1640 Kendall Drive. However, station #5 serves the largest area and any consideration to remove this facility would cause excessive overall response times to their response district. Additionally, some future growth and development that may occur in the far northwest will need the protection offered by station #5. Station #5 however, along with station #7, are candidates to be simultaneously relocated to the northwest area to cover future growth and expansion, rather than build a separate facility in the northwest, and all of the attendant annual personnel cost that would produce a low call volume station and cost more money in the long run. The second least busy station is station #8 located at 3398 East Highland Avenue and is in much the same position as station #5. On the surface it would appear to be a candidate for closure or combining into one facility with another station, however, because it is somewhat remote its closure would result in somewhat excessive response times. Station#7 located at 282 West 40th Street is the third least busy station. However, it too is on a peripheral part of the City and does not lend itself to closing or combining with another facility. Combining this facility would have to be with either station #8 or#5, but this would again lengthen an already large response area and cause potentially excessive response times. However as noted in comments on station #5, the station is a candidate for simultaneous relocation with station#5 toward the northwest. The next station, #9 located at 202 Meridian Avenue was analyzed, however it is between a joint response area of Rialto and Colton and any consideration for closure would lessen the reciprocal nature of the arrangement with these two communities. This same analogy applies to the last station considered because of workload, #11 located at 450 Vanderbilt Way which jointly responds with Loma Linda. Additionally, station #11 covers some recent new development and provides protection for future growth planned in the surrounding area. Almont Associates 55 Station#3 located at 2121 Medical Center Drive was not considered because of its joint response with Central Valley, its backup to station #2 and station #4 and its own call volume. The remainder of the stations,#1, #2,#4 and#6 were not considered as candidates for closure or combining by virtue of their locations, call volume, ISO considerations, response times for the areas or target hazards protected. This only leaves station #10 located at 502 South Arrowhead Drive for consideration. The purpose of this consideration was to try and find better ways to utilize existing tax support resources, and still provide an overall equal or better service to the entire community. 7.2 Target Hazards One of the many characteristics needed in any fire station location analysis is the location of target risk hazards in the community. A target risk hazard is defined as any structure or operation which offers a potential threat to life, safety, or property damages beyond a "normal" risk. The definition applies to processes or operations that involve a potential fire or explosion by the nature of the materials used, such as, chemicals, heat generated during the process, or both. The classification includes the type of construction, methods and materials used, and the presence or absence of protective devices such as fire walls or sprinkler systems. The classification always includes places of large gatherings such as churches and schools. Consideration is also given to those groups which need more help such as nursing homes and day care centers. An analysis of the target risk hazards in station #10's response area indicated that all of them could be responded to in an acceptable response time by surrounding stations. 7.3 Population and Future Growth A review was conducted of population by census tract as the information corresponds to the response area of any current or proposed locations changes. In 1990, station number 10 was responsible for 4.7% of the population. As we look at station #10 fire response area since 1990, there has been little if any change to the area. There have been no new residential developments, hence no additional population change. With the Almont Associates 56 increased population overall in the City the percentage of population protected by current station #10 has dropped to 4.3%. With the exception of the Inland Center Mall expansion there has been very few commercial changes. In any event, the only special consideration in the area is the Orange show which lasts for approximately two weeks per year, as well as other events which occur throughout the year. Again, this area can be responded to by surrounding stations in an adequate response timeframe. Any special consideration of standby for the Orange Show could be paid for by the Orange Show. 7.4 Alarm History Almont Associates reviewed the data that was available to analyze the alarm history. The data that was available for the years 1991 - 1993 and the first six months of 1994 is provided in Attachment A. It should be noted that the data are shown for runs rather than alarms. For instance, in some cases on medical calls two pieces of equipment are sent if the call for help occurs in a non-paramedic district and a non-paramedic engine is closer. This results in a listing for two runs with only one alamn. Naturally on a fire call three or four pieces of equipment are sent, again as a result of one alarm. With that in mind we can note an overall run (as opposed to alarm) total in 1991 of approximately 21,000 runs. In 1992 that total rose to 24, 819, 1993 down to 24,547, and we estimate the total runs in 1994 will approach 25,000. In 1991 and 1992 fire runs accounted for 19% of the total runs while in 1993 and the first half of 1994 fug runs accounted for 18% of the total. These percentages, 19 and 18 respectively, are lower than we generally see nationwide in most departments. This tends to indicate an unusually high number of medical aid calls proportionate to fire calls. This is significant in that most of our station location analysis and staffing patterns will focus on medical aid calls,except for ISO considerations. Almont Associates 57 7.5 ISO as Related to Station Locations - Some thought should be given to ISO when considering any station location. ISO (Insurance Service Office) is an organization which rates a municipalities fire department, water supply, and overall fire defenses, giving a rating from 1 to 10. These base ratings are then used by most insurance companies as a basis to set insurance rates. The components of ISO ratings as they relate to station location, are threefold. First, for homeowners, ISO wants a structure to be located within four(4) miles of a fire station. In any scenario of the current configuration of station locations, or any option listed, this criteria is adequately met. The second component of having a pumper within 1 1/2 miles of commercial structures is primarily met with the current or any proposed configuration. (All options with accompanying maps have 1 and 1/2 mile circles to demonstrate this coverage.) The third component.of having a ladder within 2 1/2 miles of a commercial structure is met with the current location of the ladder at station#1. 7.6 Response Time Before results of the computer model can be utilized, it is imperative that a distinction be made between response time and travel time. Response time, by one definition, is the elapsed time from the receipt of a call for help by the dispatcher until the responding company actually arrives at the scene. It is comprised of three separate components: dispatch time, turnout time, and travel time. Dispatch time, is the time elapsed between the receipt of the call by the dispatch center and the transmittal of the alarm. With well-trained dispatchers, the proper number of dispatchers, and Computer Aided Dispatch, this time averages between 30 seconds to one minute. Turnout time is the time it then takes for the alerted station to staff their apparatus and start en route to the address of the alarm, as firefighters may be involved in a training session, inspection, or station and equipment maintenance. When the alarm is sounded, turnout time averages about 30 - 45 seconds. This time too, cannot be reduced appreciably unless firefighters were to sit in their apparatus awaiting alarms at all times. Therefore, when seeking to reduce response times, the easiest component to affect is travel time, which is the time measured from when the apparatus begins to respond until it arrives at the emergency; and Almont Associates 58 naturally it varies proportionately with distance. The efficient placement of available resources is the only variable that can reduce travel distances; and that is what this portion of the study sought to accomplish, along with several other considerations. The map on the following page 60 demonstrates the fire response area of station #10. If removed from service the response area that would be picked up by stations #1, #2 and#11, as noted by the colors. The map on page 61 demonstrates the area that would be covered in a one and one half mile radius for commercial properties for ISO considerations. ( refer to section 7.3 for more discussion) The map on page 62 demonstrates the response time area by color that would occur from stations #1, #2 and #11 in under 4 minutes, under 6 minutes and over 6 minutes. As one can see, none of the area is responded to in over 6 minutes and the vast majority of the area can be responded to in under 4 minutes. The map on page 63 demonstrates the overlap of two and three stations. As one can see, the majority of station#10's response area has a three station overlap. i Almont Associates 59 7 � � �� or OWN Emm a: 1 it N ,:■ ' �mis WAS r _ M � �■. 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V w1pipf fj �R .r ' �'�s•� ; .r �## OPEN_ • `I w _ti 1 l �� r+' �� 111 -►,� 111 _..aC1�11N■■11tn■q�.I��■ trap Ir 1 �M1■1111�110■ 1_ ■■■ . _ ��I ■ Ell I��II� ��1�1 �MI:i• S �i� �r — .��IC 111115■ilsl■ri■■■ it� � �� `I �J� 111111111��.�■IN1�■■■11■ � ��- �� 111_11 ■1111 II ��. � ►ftri� • _i .41;: # +' # Mai ., �" ! `�• '1 '«��## r� r.�M_ SIP F , X11 � 111■■illl■■1� ■ �� --- T � _ ling i _m■g ,till s _ ytr 1 ■1111 �i ■�� n� Small 7.7 Level of Service 7.7.1 Components of Service The primary components of any fire service delivery system are facilities, apparatus and equipment, staffing, and training. Communities vary on the mix of these components to provide a delivery system. Some communities choose to provide a full compliment of recommended staffing on each piece of apparatus housed in fewer facilities while other communities choose to provide less staffing in more facilities. Still other communities choose to provide an average staffing of apparatus somewhat evenly distributed, which seems to be the approach in San Bernardino. 7.7.2 Facilities As mentioned previously, service delivery is currently provided by eleven fire stations. Because of their recent construction, stations#1 and#11 are naturally in the best condition. The remainder of the stations are in generally fair condition. This is most certainly to the credit of the firefighters who have provided some of their own time and labor to enhance the facilities. Additionally, with the changes in facility management provided by the City, the general maintenance of the stations is much better than in the past. The most noted deficiencies in several stations included: 1. lack of restroom facilities for female firefighters 2. inoperable or missing smoke alarms 3. improperly stored flammable liquids With respect to smoke alarms, it is recommended that missing detectors be properly placed immediately and that all detectors be checked monthly as part of a standard written order. With respect to improper flammable liquid storage or other potential code deficiencies it is recommended that all fire facilities be inspected at least annually for conformance to life safety codes. Finally, with respect to the lack of restroom Almont Associates 64 and shower facilities for female firefighters, there should be a policy development for non- conforming existing facilities and any new or remodeled facility should consider this in the design and construction phase. An example of a policy directive would be for the Battalion Chief or Captain facility, where possible, be allowed for female use. Any decision on stationing of female firefighters should be in consultation with the female firefighters. 7.7.3 Apparatus and Equipment A general review of the apparatus and equipment revealed a fleet in fair condition. The most notable exception to the maintenance of the apparatus was several pumps or tanks that leaked, one of which was noted to leak approximately 75 gallons per day. There is not much of an excuse for a leaky pump which can be packed for labor plus $50 worth of parts. A leaky tank can be patched for labor plus a few hundred dollars in cost and assuming the remainder of the apparatus will provide five or more years of service can be retrofitted with a new poly tank for $5,000 to $6,000. Resources should be allocated to the shop to correct this problem. The maintenance facility keeps excellent records with respect to labor time, parts cost, annual pump tests performed, and all records necessary for ISO evaluation. The most glaring deficiency noted was the lack of an apparatus replacement program. The department needs to develop an apparatus replacement program. This would help lessen the need for additional staffing in the maintenance shop. 7.8 Risk Any decision on any of the four main components of a fire service delivery system involves an element of risk. The tempering factor for eliminating virtually all risk is cost. If cost were not a factor, San Bernardino could place several more facilities fully equipped, staffed, and continually trained in all emergency aspects. The reality of limited tax dollars competing for various needs in any given community means that choices must be made that will limit delivery of one or more components of a delivery system. When these decisions are made, an element of risk accompanies any decision. The main goal is to try and develop decisions that provide a reasonable comfort level to risk. Almont Associates 65 7.9 Recommendations It is recommended that if station #10 is closed the position or salary savings be allocated as noted. - 1. One position or 3 people be reassigned to station #11 to make that unit a four person paramedic engine company. 2. One Engineer and one Firefighter position or 6 people be reassigned to station #1 to establish a paramedic squad and one of the fire personnel from the pumper would cross-staff the squad. This would result in a three person squad responding to medical calls reducing the call load on the pumper. It would also result in a better response time and provide more efficient use of personnel. In the event a fire alarm occurred, one of the squad personnel would cross-staff to the pumper resulting in a 5 person pumper and the other two would cross-staff to the ladder resulting in a 5 person ladder response for fire calls. The net effect is an increase from 5 to 6 paramedic units in the City, and a potential of having more staff on the ladder company for fire operations at station #1. This recommendation would require the use of more paramedic/firefighters and hence take time to acquire the paramedic/fire personnel to replace strictly firefighters through attrition. Today's additional paramedic cost above firefighter is approximately$6,800 annually. It also should require re-thinking the use of a 3 person squad plus sending 4 people for a total of 7 on cardiac calls. 3. Two of the Captain positions would be utilized under option #2 as stated on page 19. The third would be utilized as salary savings to fund additional inspector positions until the extent of fee generated reviews is known. 4. If it is determined that the City wishes to cover some of the more deficient response times in the northeast 215 corridor, the maps on the following three pages reflect the possible relocation of stations numbers 5 and 7. Almont Associates 66 ME III I ro `�' Avon 11t1t11■�j',�ri71i�1trl� =�r= -• —1111�� r■ ROM .0 WIMMIL Mrjn �' t Mad :::��]m111/:III�IIIII:II:�t: 1 �:.ar Er:�� IRi1�11:11t:�■�11 IW4 �ImIICIIIi��1111>•': PERM WE wvfil�_ m Will: 111i Pfil UP Ain,, MAI HIVE a of C INN INN ( u AL ■ all U:MMIPM .� T •ai.r�u-. — � i - - ,IUL11111111 a G7 IL III'm ��••� •• • �1fJ1 ill 111111�* .__Gai ell � ■wlcr+� �4��....��]t■IIIfJ111�11111.I1.�C irkif■�i�• �iai�i�V �JIIIII♦11■��JC.�� --arm --Clio i( �� ar�� e II:�IIC�1111�f>f��lll�� f�l�r� I�■�iuiyiNU �bpi Ilia Alto iC111 MIR #; 1�� .' 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In reference to the Management Audit of the Fire Department we have the following comments and recommendations: 1. We would suggest that the lay off of the Battalion Chiefs should await the completion of the new organizational plan so that before you eliminate what you have, you will be fully aware of what you will be getting. 2. We note that the lay off of three Battalion Chiefs will result in a span of control for the remaining Battalion Chiefs of 13 to 1 which far exceeds what the audit determined was too great a span of control for the Deputy Chief ( see pg. 15 ) . 3. We would suggest that the Council carefully consider any effect of the audit implementations on the City' s ISO rating which can result in significant insurance cost increases to individual homeowners and businesses. ' 4. Since the closing of fire stations will affect the working conditions of employees in the department, this issue is subject to meet and confer under Meyers- Millias Brown. 5. Finally, care should be taken to be sure that any proposed savings are "real" in light of Charter Section 186 constraints on the Fire Department ' s organization and compensation. Yev �o*Q' SA �41- SecmA t m j TROUGH 000 maw Thank you for your consideration and we stand ready to work with you on this and future audits, as well as other management related issues. Very truly yours, Dennis . Barlow President J n Kramer visory B a Member � LLtI� ran eller Advisory Board Member Ye), b&wyXmmwy��